(No. 367-0155)

USAID/INEPAL Kamnndu. November 1986

United States Agency for- in ecationai OevefopmanL ADMINISTRATIVE ANALYSIS

RAPTI DEVELOPMENT PROJECT (No. 367-0155)

Office Prepared by : Rural Development USAID/NEPAL

Incorporating analyses by : Sheladia Associates

1986 Date . November

. / TABLE OF CONTENTS Page No.

5 I. THE INSTITUTIONAL SETTING 5 A. Indigenous Institutions 6 B. Political Institutions 7 C. HMG Administration 1 ) Private Scctor D. The Assi! .ance E. Foreig:i 13 DEVELOPMENT 1I. HMG POLICY FOa RURAL 13 A. Evolution of Decentralization 14 and By-Laws B. Decentralization Act 17 Secretariat C. The District Panchayat 17 D. Roles of Regional Offices 17 and User Groups E. Village Panchayats is F. Some Issues 19 ZONE: THE INSTITUTIONAL FIT III. RURAL DEVELOPMENT - RAPTI 19 A. Design Assumptions 21 and Constraints B. Implementation Realities 21 FORESTRY PRODUCTION STRATEGIES IV. PROJECT AGRICULTURE AND 23 A. Overall Strategy 24 B. Private Sector Stimulation 26 Development Management C. on Potential and Demand 26 D. Production Support based 27 DEVELOPMENT PROGRAM V. DISTRICT INSTITUTIONAL 27 and Coordination A. District Planning 32 B. Women in Development 42 C. Rural Works DEVELOPMENT VI. PRIVATE SECTOR E8 THE PROJECT COORDINATOR'S OFFICE- VII. MULTIDISTRICT SUPPORT -- 5P Functional Roles of the PCO A. the PCO 61 B. Structure and Staffing of 65 VIII. PROJECT MANAGEMENT 65 A. Project Management 66 B. Project Contracting LIST OF TABLES Paqe. No.

15 Processes for RDP 1. Planning and Monitoring Plan 30 2. Illustrative Local Training 33 Training Achievements 3. Phase I PCRW Progam and 34 Summary 4. NFY 2043/044 WID Program 41 Outputs under RDP 5. Planned WID Program 44 6. Phase I Rural Works Achievements Construction 7. Planned Rural WorksRDP Program under Office 8. Proposed Project Coordinator's 60 Organization the Project 9. Proposed Staffing of E2 Coordinator's Office 63 Assistance under PSO 10. Illustrative Technical 64 Assistance Plan 11. Illustrative Peace Corps DEFINITIONS ACRONYMS, ABBREVIATIONS AND

of Nepal. Agricultural Development Bank ADB, ADB/N Development Officer AL0 District Agricultural Agricultural Inputs Corporation AIC Internlational Development, AID/W U.S. Agency for Washington Office Appropriate Technology Unii; ATU Program CSP Cropping Systems CY Calendar Year Marketinq Service Department of Food and Agricultural DFAMS Controller or Officer DFC, DFO District Forest into 75 basic administrative units District One of the which Nepal is divided Livestock Development and Animal DLDAH Department of Health Agriculture DOA Department of Department of Forest DOF Soil Conservation and DSCWM Department of Management Watershed 1 - September 3n1) U.S. Fiscal Year (October FY GON His Majesty's Ha(s) hectare(s) Nepal His Majesty's Government of HMG; HMG/1 sub-division of the District. Ilaka An administrative district has 9 Ilakas. Each Technical Assistant JT/JTA Junior Technician/Junior Kilometer(s) Km(s) Development Officer LDO District Local Agriculture MOA Ministry of Ministry of Finance MOF Panchayat and Local Development MPLD Ministry of tons MT Metric July 15 - July 14) Nepal Fiscal Year (approx. NFY Planning Commission NPC National sub-unit of District. Village, an administrative ATU Panchayat Unit of ADB in Tulsipur formerly PEU Private Enterprise Panchayat Forest Papti PF Project -- Rural Area Development: Phase I Phase I Project (367-0129) Document PID Project Identification PP Project Paper Protected Forest PPF Panchayat Trial Pre-Production Verification PPVT Project (367-0155) RDP Rapti Development Rs Rupees Small Farmer Development Program SFDP Agency for International USAID/N United States Development, Nepal Mission administrative unit, usually Ward The smallest hamlets. There comprising a number of small are 9 wards in a Village Panchayat. Development Officer WDO District Women I/ [. THE INSTITUTIONAL SETTING

A. Indigenous Institutions in Rapti of land and labor resources Power, and hence control gender, primarily by three key factors: Zone, is determined acquired, but ethnicity. Wealth can be wealth, and caste or These key and caste are inherited characteristics. gender indigenous social, cultural, are firmly embedded in to determinants in the Zone. Each is important and economic systems the religious in terms of its impact on contemplated project activities to be types of participation likely allocation of resources and encountered during implementation. of gender discrimination existence of and manifestations hence The males have more power, and are relativel)y straightforward: legal than do women. Although Nepal's better control of resources basic and modified to provide for code is being challenged is a long way legal rights for women, there inheritance and other gaining access to households have difficulty to go. Women headed represented at the resources. Women are rarely credit and other Women do not get or District Panchayat Assemblies. Village training and other developmcnt as frequently as men for selected is thus a pervasive and Gender discrimination in Rapti benefits. which development efforts fundamental institution within Zone are carried out. caste or ethnicity, is more The second determinant, derives from means of describing the situation complex._/ One point, there are system. From this vantage the Hindu caste categories. The high 1hindu essentially three basic socio-cultural and the and Chhetries (including Thakuris) castes of Brahmins second major group castes form one group. The lower occupational Kham , other Rapti Zone includes the Magars, is the in Tharus. The third group groups, and the Zone. Tibeto-Burmese in the bazaar towns of the Newars, mostly traders located the land, they generally form Although, some Newars do own class in Rapti Zone. entrepreneurial or merchant the of groupings is overlaid by This rough characterization once area. What is now Rapti Zone feudal system in the Salyan historical rajas, or principalities. of several independent were consisted parts of present-day Rolpa, and Rukum, with each including progression kings, with a fairly linear ruled by Thakuri () in Rukum and continuing strong dispute in one household in Salyan had a Musikot and . Pyuthan between key households in of the "Institutional directly incorporates much I/ This analysis prepared in February 1986 Privatization Technical Analysis", Project ind for the Rapti Development by Sheladia Associates, Inc. Indentification Document. from the PADCO Regional Assessment, 2/ The discussion is derived 7ppendix 1. only popl aiLed b and Deokhuri valleys were Brahmin king. Dang as leaders. As some stronper households serving Tharus, with Brahmin-Chetri eradicated, however, the powerful malaria was most Tharu land and from the hills appropriated families today. Rolpa was only created control the resources an identity effectively 1963, and has yet to find an administrative unit in as powers. in terms of cohesive indigenous indigenous institutions discussion of other relevant Further Analysis. is provided in the Social Soundness

B. Political Institutions of government was established The Partyless Panchayat System system a decade of seeking for a suitable in Nepal in 1962, after always held at the Although direct elections were of government. for most years the level of the system, the ward, lowest of the system was determined only representation at higher levels In 1980, a major national referendum through indirect election. reformed to provide and the Panchayat system subsequently was held of government. Given the fact direct elections at all levels for there was virtually no popular that under Rana rule (1846-1951) the move to direct democratic participation in politics, is somewhat remarkable. government in only 30 years the of the rest of the country, In Rapti Zone, as in much of their hold and most peo-le are aware Panchayat system has taken their village panchayaL. National-level ward politics and are frequently still the Rastriya Panchayat (RP), elections, for of the area. Thus in by the former ruling households stand dominated that once vied as r aa now the same Thakuri hcuseholds Rukum election as RP member. In each other every 5 years for against vie, through the indigenous Pyuthan, several Brahmin families had one elections. Dang has normally system and in the national among various RP member, and a second selected wealthy Tharu cohesive and the landlords. Salyan is the most Brahmin-Chhetri support for a strong Newar leader exception, with almost universal And Rolpa has one strong and who is nationally influential. elsewhere. great deal of factionalism respected Magar leader and key in terms of development The District Panchayat, now is much less tied to the historical planning and implementation, guarantee the key households can still power structure. Although changes "favored sons", in all districts the election of numerous Panchayat in new demands on the District have been occuring. The of the older imply new skills, and some terms of actual governance Although tim teh1am politicians are now retiring. and less educated anecdotal accounts to gather any detailed statistics, was unable the District Assemblies in that approximately half of suggest under 40. This age difference Salyan, Pyuthan and Dang are Rukum, who have grown up during that the members are people implies are more likely to be educated democratic era, that they of Nepal's they may have a different set than before, and that in general

6 to represent. Although direct allegiances and client concerns once. Panchayat have only taken plkjcc- elections for the District to watch in ter'm1S of elections will be interesting in 1982, coming Changes are dCfiiiL!Iy types of people now being chosen. the level. occuring at this most critical political systems has interface of historical and "modern" The the smooth conduct of District-level a number of implications for the new Decentralization Act. government, especially under where the governance should run smoothly Essentially, district and where the RP and "modern" systems have melded, indigenous are of the same faction members and District Panchayat miade some more recently developed) or have (historically based or RP members and together. In areas where the compromise to work interests, be they Panchayat represent different the District development ie0Cds, there: on historical powers or on modern control, based Although well outside of project is sure to be conflict. of district realities will guide the course these political now more than before. development planning and implementation C. HMG Administration is the political system in Nepal As briefly described above, and combining system beginniig with the ward, built on a pyramidal District Panchayat and through the Village Panchayat, higher with His Majesty the King above National (Rastriya) Panchayat, this or governmental system follows all. The administrative certain additional with certain common points and hierarchy, below in terms of the Rapti layers, which are briefly summarized Development Project. 24 central ministries with the National Level, Nepal has At The key ministries [or Rapti several parastatal corporations. of Forests Ministry of Agriculture, the Ministry Phase II are the and the Ministry Conservation, the Ministry of Finance, and Soil The National Planning Panchayat and Local Development. and of in Five Year and Annual planning Commission, with its key role budgeting, is also important. technical recommendations in the related Following the government at the national level the following analyses, in the project. organizations would be involved 1) Under the Ministry of Agriculture of Agriculture, or DOA, (for agriculture Department and horticulture research, extension, training, activities); ealth, or of Livestock Development and Animal Department forage and fodder DLDAH, (for livest"ck and some activities);

7 AB;'N, (Eor Deveioment Bank of Nepal, or Aricultural an overall a:ricultural, ma armer Development Groups livestock and forestry credit); (for improved Inputs Corporation, or AIC, Agricultural pesticide supplies). seed, fertilizer an and Soil Conservatoll: 2) Under the Ministry of Forests all coidlIuifLy and Department of Forests, or DOF, (for forestry activities); national Manageieflt, Department of Soil Conservation and Watershed and other critical areas or DSCWM, (for road corridor stabilization); that the vertical Ministries or agencies The above are the involved in have named as being directly technical analyses In addition, therf, are or implementation support. implementation support Lo all local agenices that provide cross-cutting three These are: development projects in Nepal. (MPLI)), primarily Panchayat and Local Development Ministry of key nationaI link su.port but also1 or as the or traI nng Office, which is key the District-level Local Development with Nepal. The MPLD chairs the to all field-based programs in which has been structurally natio al level IRD Board inputs in for coordinating vertical ministries' responsible potential changes in the Zone. Section 4.6 discusses Rapti Rapti Phase II. MPLD's role in this regard under Aid Division of Finance, through its Foreign Ministry tie Project Grant Agreement and any amendments with negotiates IAG budget ceilings for USAID and USAID/Nepal and establishes (;et:- ra l ' s ; through i ts Finaicial Comptroller contributions the flow of funds and Office, establishes and maintains program accountability. or NPC, establishes budget National Planning Commission, Five year and Annual planning ceilings overall and provides guidonce to all line agencies. or representative aL tie of the above has an office Each the Mid-Western Region that level, located in Surkhet for Regional Offices have historically had includes Rapti Zone. The Regional I. Section III.D. of this report little to do with Rapti Phase future offices in the current and discusses the role of these policy context. Inputs Development Bank and the Agriculture The Agricultural The Department or have Zonal level offices in Rapti. Cooperation has designated its Dang Development and Animal Health Livestock for livestock activities Office Chief as "Coordinator" District a temporary role and not a Rapti Phase I, but this is under AIC Zonal Offices play a more structural one. The ADB/N and

8 than do thc l in terms of District support ...... active role With these two possible for the other ministries. and dirction offices communications, support exceptions, however, most of the various the district level offices essentially flow from listed above to Kathmandu. departments or agencies describh s the Section III of this paper At the District Level, the districtS in the relationships of and actual changes its By-Laws. A planned Decentralization Act and the center due to the that will to various HMG structures brief description of the and sub-distriCt project at the District implement the proposed levels follows. DevelopMOLt .nd Agriculture, Livestock The Departments of and Watersled and Soil Conservation Animal Health, Forests, of Rapti Zon,, with offices in each district Management all have to this full covrage as departments having grown the latter three and Livestock have pursued Phase I. Agriculture a result of Rapti personnel (jr's a i)I .'A's) at placing extension a vigorous effort where possible in Service sub-centers, clustered follows a at agriculture The Department of Forests at the Ilaka level. and "beats" Centers structure, with "ranges" slightly different District than the Ilaka more sub-divisions (12) that equate to slightly and post field offices are quite new, structure (9). The DSCWM and worksites. staff only at nurseries Offices Bank and AIC have Branch Agriculture Development were The several again-of which in each District Headquarters, 1. Both also efforts under Rapti Phase established due to the and at offices in Dang District have additional branch personnel In, ,tL ADD/N has sub-district in . The in the Zoin,. covering 23 Village Panchayats SFDP sites, now distributed at a inputs are theoretically Agricultural (Saihas) and private dealers. level by cooperatives of 23 Salhs are sub-district exist and only IZ out In fact, only 10 dealers functioning. at the Commission has no presence The National Planning district level. the Controller through the Office of The Ministry of Finance eventilolly Treasuries, which will General backstops District AIL five and auditing in each district, function in accounting during Rapti Zone were established District Treasuries in offices for plan to strengthen these 1981-1983. The role and 1MlanagemenL is presented in the Financial project implementation Plan Technical Analysis. Development is represented of Panchayat and Local The Ministry the Local Development headquarters through of at the District paper describes the role Again, Section III of this Office. Secretariat, including techimical the new District Panchayat 9 Local Development Office, il ,Iu'- agency personnel and the the it is responsible for both coordinating detail. In summary, "panchuyat of all line agencies and for implementing activities Panchayat Secretries sector" programs in the district. Village are supervised by the LDO. sub-district l,,vels of In sum, full-coverage District and where they did not five technical agencies in Rapti Zone exist of both quality and quantity of technical years ago. Problems analyses. highlighted in the relevant technical staff are and a centrist Problems of continuing vertical relationships government are discussed in subsequent attitude on the part of the are of this paper. The offices and insfrastructure sections carry out more productive essentially now in place, however, to work. D. The Private Sector undertaken by PADCO in 1985 The Rapti Regional Assessment in of areas of active private sector growth highlights a number compared to the last five years, especially when Rapti Zone over growth in credit APROSC Reconnaissance Survey. The large the 1977 is particularly lent by the commercial banks and the ADB/N Rapti Phase I, through the Appropriate encouraging. Efforts under il generated a number of small scale enterprises Technology Unit, Works, Dang's in particular. Tulsipur Engineering food processing was started through the only multi-purpose garage and workshop, project. And, finally, the agriculture component efforts of the seed by private increased the production of vegetable greatly now supply much of Nepal. contract farmers in Rukum district; they well sector in general, however, has not been The private that matter) and any studied in Rapti Zone (nor in Nepal for definition. The Department of analysis suffers from lack of on Industries does employ one typology based Cottage and Village in registering for tax break purposes, but succeeds capitalization backward linkages and few industries. Industrial forward and very well defined. As will be consequent resource mobilization is not the capitalizatiun of many of Rapti's seen from below, defining related is fraught with problems. A rough typology, industries Phase II project, is specifically to the aims of the proposed attempted in the following paragraphs. This category would extend to all Household Enterprise: and activities carried out by individuals "private sector" the household, that are vertically integrated within households minimal outside inputs. i.e., enterprises that require no or large and small, operate as small Most farm households in Rapti, and on an ad hoc basis, marketing surplus production businesses goods, such as chiuri some processed agricultural and livestock and wool. Barter is reported as ghee, ghee, beaten rice Goods are low, and cash sales seems to be the norm. surprisingly or sold within the zone or transported to Butwal, elsewhere.

10 This category includes Assisted Household Enterprise: or backward enterprises with a forward individual or hou-ehold farm enterprises have a government agency. Several linkage with assistalnce and/or monopsonistic teen stimulated through technical noted above, years. Farmers in Rukum, as HMG practices in recent in certified seed production and in Dang engage in vegetable by district agriculture production, with supervision cereal seed by AIC. Tree seeds are and purchase by the ADO or personnel to the District Forest by individuals and sold one collected except Dang now has at least Controller. Each district who receive tree nursery, run by individuals private fruit AIC private dealers, who are advice from DFCs. The ten technical commissions by AIC, are also paid transport costs and their included in this category. This category includes all User Assisted Group Endeavors: with can be self-sustaining, again Groups which theoretically The best (or both) linkages to 11MG/N. forward or backward Program (SFDP) groups, the Small Farmer Development established, activities very often. in fact undertake whole group do not through peer pressure otherwise Rather, as a group they assure agricultural loans for individuals in livestock, uncollateralized such as sprayers. occasionally fa,m equipment production, and of programs established indicate that interest reflows Recent data the administrative costs of Zone in 1982-1983 now cover in Rapti office expenses of the Group the program, i.e, salaries and Organizers and accountants. attained by other types of self-sufficiency has not been that This Panchayat Forest Committees User Groups yet, unfortunately. have not pay nursery naikes and guards on paper are to eventually by the ADB/N so. Irrigation groups established yet begun to do begun to function, so data assistance have only recently with CARE viability as small enterprises. are not available to judge their groups exists with regard to the Women's A similar situation Sajhas, which do fit this by District WDO's. The old established outstanding debts with have for the most part major category, viable by most observers. ADB/N and are not considered This category would fit in what Small Commercial Enterprises: Zone. It "private enterprise" in the most people would detine as operators, small brick factories, includes turbine and mill grainl traders, (porters, mule trains, and tractors), transporters small restaurants and lodges, consumer goods stoces and traders, have Tax Offices and District Panchayats etc. The District of this sort, and records of most registered enterprises listings complete. All have been indirectly at this level are fairly likely to receive by Rapti Phase I efforts and are stimulated II. indirect benefits from Rapti Phase

11 this category is the construction A special group in who are registered as Grade D, and contractors, most of whom The under one hundred thousand rupees. undertake contracts of major building stimulated this group through Rapti Phase I project Although and the road construction work. construction efforts they will still be is envisioned under .'hase I, less construction trail upgrading, and small active in small buildings construction, scale irrigation works. data were not collected by the Medium Enteprises: Although in Rapti that are not directly team, there are a tew enterprises that have substantially larger government assisted and is the category above. The most notable capitalization than for all five which has the liquor concession Lamahi Distilleries, people of Zone, employs a large number of districts in Rapti the firewood in consumes major quantities of Deokhuri Valley and larger year. Others include some of the that area each larger traders and and bus owners and a few of the transporters would probably in Ghorahi. The new cinema in merchants made in the physical plant. qualify as well, given the investment sector in Rapti Zone is In summary, the existing private and scattered, but active. defined and relatively small vaguely have 1)oth forward and from the listing above, many As noted and/or other informal backward linkages with government Group studies, "Potential for Small enterprises in the Zone. The Zone," prepared by the National Development in the Rapti Private Association (NCBA) and, "Small-Scale Cooperative Business ADB/N in the Rapti Zone through the Enterprise Development Partnership Development Unit", prepared by Appropriate Technology For International provide recommendations for Productivity studies have helped group enterprises under RDP. These assisting private and local group activity better establish a typology of to prime targets for more formal to identify groups that will be and and benefit the inhabitants of assistance to increase production Rapti Zone.

E. Foreign Assistance in and donor groups are an institution Foreign assistance discussing Zone that cannot be ignored when Nepal and in Rapti budget is A large percent of HMG's development development. Any aiscussion of HMG supported by foreign assistance. currently must be read with this contribution and project sustainability fact in mind. strong donor coordination Nationally, HMG has not favored much is thus carried out either sectorally or overall, and informally through personal relationships. The Donor Group exception, but one in which HMG is Meeting held periodically is an donors participant. In the late 1970's, an occasionally reluctant the new a local group to maeet to discuss who tried to form chastised by rural development" projects were severely "integrated the governmet. Sectoral officials for trying to work around HMG personnel have generally not met working groups of HMG and donor with success.

12 with a request by into the Rapti Zone began America's entry upgrading the road impact for USAID to investigate HMG and IBRD Rajmarg-Tulsipur Road Project of the IBRD-supported Mahendra only in area HMG's interest was initially in September, 1976. Although policy at of Dang Valley, given AID's agricultural development its area of analysis assist "the poor majority", begin that time to Although funding did not the entire Rapti Zone. expanded to Design Project, HMG central 8 under the RAD/RCUP Rapti Phase until mid-197 in Rapti Zone thus view personnel and many politicians already spanned a relationship that has II as the continuation of one decade. involved in Rapti was the era during which USAID become were The others, including AID, that the World Bank and same era multi-scctoral or "integrated the newest generation of did beginning Although 11MG, to its credit, rural development" projects. "balkanization" Level Donor Group Meetings, host a number of Local fund nine area IRD sphere. Ten donors definitely occured in the projects in Nepal today. specific multi-sectoral projects, however, is donor-funded The fact of life in Nepal, thus abound, or not. Management distortions be they area specific administrative and different donors have different often in that Normal 11MG programs are needs that must be met. to fit accounting and then molded (or not) into donor projects, maintaining its repackaged, HMG is to be lauded for existing nascent systems. control over so much.

DEVELOPMENT II. HMG POLICY FOR RURAL

A. Evolution of Decentralization the adopted in 1962, initiated The constitution of Nepal, with early efforts did not meet of decentralization, but called concept brought out a new approach success. In 1974 HMG/N the great (DAP). The main thrust of Administration Plan district the "District of an integrated annual to ensure the preparation DAP was and the creation of a unified plan by each district be the development Officer, or CDO, was to The Chief District The administration. at the district level. of development activities important coordinator Assembly were also given District Panchayat and District of district in the formulation and implementation roles to assume the framework for decentralized Thus the DAP was to provide its plan. It suffered, however, in and implementation. by the CDO was planning The leadership provided adoption by line agencies. district level, and the to the line agencies at the not acceptable were not prepared to entrust ministries at the cencer line the CDO. administrative control to a new concept in late 1978, HMG/N introduced Consequently, Design (IPDD). The the Integrated Panchayat Development and called the develooment of the Village" thrust of the design was resource main institution for participation, District Panchayat as the 13 The 1,P.) decentralization and rural development. mobilization, at different levels ill a chain of coordination committees and provided of cross-sectoral integration to achieve greater degree Centers" order the creation of nine "Service coordination. It envisaged to be a focal district which was 3upposed in the nine Ilakas of a of the implementation and supervision point for planning, Ilowever, the adoption of program at the local level. dovelopment faced more or less same constraints the Design was very slow and as the DAP. separate ,,,inistry called the the Referendum in 1980, a After was created for oversecing rural Ministry of Local Development of Panchayat and In 1981, it was named Ministry development. of the Panchayat Development Local Development. The status function of District Panchayat Officer (who took over the was raised and designated Local Secretary from the CDO) as the coordinator Officer (LDO). lie was to function Develipment a role hitherto performed by of the district development program, the CDO. occasions expressed his Majesty the King has on numerous His His Majesty's strongest full support of Decentralization. the absolute necessity of decentralized message, stressing was the crux of his and management for development planning late 1981. Constitution Day message in Act materialized in a Decentralization The royal exhortations By Laws in 1984. 1982, and the approval of Decentralization 1985. in into full effect on mid-July The Decentralization Act came and By-Laws B. The Decentralization Act for the formulation of annual The Decentralization Act calls plans -at the Village and District integrated multi-sectoral national periodic plans are levels on which sectoral and Panchayat that the National Planning to be based. The Act also requires and procedures for "bottom-up" planning Commission (NPC) develop District and planning capabilities at the for strengthening Act delegates the Panchayat. In this way the and Village to the local Panchayats (DPs responsibilities and authorities evaluation of implementation, monitoring and VPs) for planning, budget and plan projects. The annual district development in Table 1. formulation process in presented Plans are to be based on total The annual District Development available from various sources financial and material resources generated resources; (ii) grant-in-aid including: (i) locally sector" projects), from HMG/N (i.e., the ,,panchayat contributions by HMG/N for district level sectoral and; (iii) funds allocated empowers Village and agency) projects. The Act also (i.e. line and tolls including the District Panchayats to levy taxes Land Tax (PDL'r), with a view towards Panchayat Developnment base of local panchayat's. strengthening the financial resource

14 B( Planning and Honitoring Processes: Rapti

]] I._ Iistr i PlanningProEess n&J sets - iwnist rv t F i.ince 10f 1 Distri.i IPC - Nation3 FPant imir Commission t .sllocations cvIop DI i. - l- r-.ii' r,c f Agriculture I "" pl hF - Ilinistrv (.f Fo-reslrv 0 '. gideines and LoC31 Dze -lpment .... 11Ntion31 IIPLD - I lini~tr1 c.,f Pxchayat Office District guidelines LDO - Local Develoiprnenlt sets I Plan .//lF and bud-et CDP - District DevBlopment, and budget resource tors District projections aloc 3loctions to line allocationsa r-ec-iterunin iprepred sent HOF andNPCapprove received Panchayats DistictLdevwlop pI // thrug LineAgenies andfliC Ditr. LDO ardVillage Agenciftrc t1l.'f. NPC . guidelines and IOii Districts cif andl b 1 Agencies u9LDAaen I Line rIPLD sets budq prepare ceilings :and program / lioca1ns.O// and 912 Lbu(JeWLquidelines ceilings 160,1, a f 9 1t 16 Latest Fin ish - 9'

fn tc ELM igl MontoringKIG/USAD ------,Project meetinc, Panchavat first with Dislrict Project eringD reiew and Ageeso AuPro t InventoryResource Trimester Agencies on Comnmittee meets Annualan targets and to review budgets Rview and an prveUdtdreport 9-J-LL program guidsn-e 11/3 9/17 / 1LtLDJ]Ip_.£Lec t Actions of Project Review Performance Review Guidance and I12 Local Currency of Budget Plan Pefa nce 1 1/21 9/9 99/1 - DDP"revs -TTable No I uelopment Projet (367-0155)

District NP Panchayat rPC Agriculture and re w Irrigaton / D- - an/L n SCommitttee Agencies Joint DP reviewed DD5MAOF Committee and approved (M District meetingsprepare under by District reviews | submitsr PchytLDO L budget9 District ommittee Panchayat DistritMA / bia \- . :QlindustryU3trP3nchayat -nst'; DDP District 2----- 5/2Z-' receives Forestry and AssemblV gig plans Soil /16 i e ws / at i on 2 /v /- • Co ns er v DDP ins J L 1Committee I / 19-/ r w

ts3 Distri, Panchayat WVorks & PL/ reviews Maintenance Committee rDDP "-

Project Steering 1/19 Secnd5/ Trimester |Committee meets rimeste to review 3nd review and .3pprove protirams report and budgets

/ / 6~

Annual n Aul- Review of Eudget . i ; Performnce Executive E ecut ' e Summary '5umm3rv € ..22 Drafted -L resources remain modest, Zone, locally generated devoted In Rapti and are usually wholly in the hill districts, particularly of running the District the administrative costs quite to covering Asse,,bly. The PDLT is and convening the District in Panchayat generally viewed as regressive to administer, and is in the cumbersome who more intensively cultivate it taxes small farmers farmers. Only that than the larger terai hills at a higher percentage implement it, and in Nepal have asked to a few terai districts The locally generated not yet been granted. permission has in Rapti are apt to remain collected by the districts resocrces future. meager in the foreseeable for funds are generally used "Panchayat Sector" grant-in-aid projects and have been greatly visible small rural works Salyan under Rapti Phase I financing. supplemented by USAID in allocating some made a significant step District this year has thus supplementing towards health and education, of its MPLD funds Section V. of this report funds in areas of need. program line agency AID funds for this grant ways to utilize limited explores more on the productive sectors. to focus District Panchayats the line are provided annually by agency funding ceilings Line in different amounts. All NPC, and USAID...often plans ministries, problem, and based on existing concerned are aware of the more smoothly next year. the process should go by various plan has to be reviewed The annual district and approved by plan formulation committees subject-matter based both elected DP The committees include the District Assembly. The District Assembly line agency personnel. members and district for planning and resource main agency responsible functions as the the approval of the within the district. Without be allocation no development project can Assembly, theoretically District level. implemented at the district districts of almost one third of the --like year due to a District Assembly last Nepal--did not convene the rules prescribed in political squabbling. Following internal its plan will thus be made the Decentralization By-Laws, by the NPC. unilaterally in Kathmandu have so the line agency officers other Rapti districts, In the the District Assembly members far all succeeded in "convincing" from the center and programs, mostly received that their targets the whole planning make sense. In Salyan, and from the PCO, at the Ilaka and followed, with meetings process mandated was more attention was level. Even there, much District Committee the MPLD grant-in-aid area of traditional control, thus paid to the Most District Assemblies than the sectoral programs. given them. funds, exercising the new authorities have a long way to go in

16 Secretariat C. The District Panchayat is hot on decentralization effort The emphasis of the present creating a new Instead it focuses on creating new institutions. the institutions in and relationships among set of roles the District Panchayat At the district level, line existence. includc all the sectoral has been expanded to with Secretariat organizations, concerned agencies, including parastatal integral sections of offices now function as development. These control and supervision under some administrative Secretariat is the Secretariat (The District Panchayat of the District Panchayat. Panchayat, which elected official of the District chaired by the However, the implementation of nine elected members.) to rest is composed component will continue responsibility for each sectoral line officials agencies, meaning that the with respective line parent ministries in to be answerable to their at will also continue This means that line officials to their guidelines. "dual" adhering within the framework of the district level operate supervision. for coordination the Act, the MPLD is responsible According to Development Officer activities through Local of inter-sectoral to the District Panchayat who also serves as secretary lie is (LDO), akin to Chief Executive Officer). Secretariat, (a position and implementation of the local planning, budgeting District in charge both the Chairman of the The LDO nov reports to "dual" process. ministry, MPLD, again having Panchayat and to his line supervision. Offices D. Roles of the Regional the Regional Offices of to the Decentralization Act, According the Regional Office of NPC, line ministries, including in different in providing technical support have important roles to perform activities at and monitoring of sectoral planning, implementation Regional Offices so However, the roles of the the district level. of "clearing and more confined to the job far seem to be matters. The PID team agents for administrative of its forwarding" Offices in. Surkhet as part all relevant Regional the staff nor visited The offices have neither research for this project. to the Districts. to provide much assistance arid the formal authority in Surkhet and Nepalgunij, MPLD regional training centers are the The Training Center in Nepalgunj, the Agriculture Regional main regional linkages foreseen. and Users Groups E. Village Panchayats of decentralization is institutional One of the basic thrusts Village Panchayats at the local level. Accordingly, development points for the planning, implementation have been made the focal Sub-VP Users Groups of local development programs. and evaluation for undertaking the planningarid or Committees have been formed Drinking.Water development projects, including management of local Committees and Irrigation Forest Committees, School under SFDP Committees, Small Farmer Groups formed Water Users Committees.

17 in both improving levels o the most successful of these have been community development projects living as well as in undertaking and their role programs. These groups for village development in the NCBA report. under RDP are discussed to Decentralization F. Some Issues Relating (LDO) is in the The Local Development Officer 1. central of having at least two asters--his His difficult position potentially few allies. ministry and the DP politicians--and technical line level are more often the peers at the district rather than the outsiders like himself, agency personnel, By-Laws, he is ceded Under the Decentralization personal politicians. his peers for such critical authority over relating to administrative and for substantive matters matters as granting leave, may respect his and monitorilg. The techuicians plan formulation but can always claim higher right to effect coordination, have generally come in case of conflict. LDO's technical concerns ministries of Education, ranks of the non-technical the up through the technician's bluff. In and can rarely call the MPLD, or Home, in coordinating the line much of the LDO's effectiveness end, skills and informal relationships. agencies rests on inter-personal the Secretary of position in MPLD and as Because of the LDO's linked with the he is also much more closely the DP Secretariat, associated with astutely try to avoid being politicians, and must some districts, where factions exist. In one particular faction greatest estimate they spend the in fact, LDO's privately with assuaging political rivalries, proportion of their time development work. consequently less time for responsihilities has major internal supervisory The LDO also MPLD divisions under his Secretariat and other district for the DP supervise the Planning The average LDO must currently Section. office. Office and an Accounting the District Technical a Field Officer, Zone, positions exist for five districts of Rapti filled. In the although not all are yet Officer and a Training Officer, have Women's Development Officers, Three Districts in Rapti the LDO supervises a the LDO. And in Dang Distcict, supervised by in Rapti will also Office. Next year, LDO's Local Revenue Section. Finally, the LDO a Procurement and Logistics discuss supervise Panchayat Secretaries to moathly with the Village meets in the village. their activities and issues Following very difficult position. The LDO has, in short, a position analysis, it is a necessary basic structure-function district any in Nepal. The recommended for sustained development in Section V provides development program presented institutional to the extent possible, his strategies for increasing, effectiveness.

18 G. Incentives for Decentralization. have not fully embraced the Many central ministries the and are following the law to concept of decentralization intent. As noted earlier, central letter rather than the full their personnel separate budget ministries are still providing he the latter commonly accepted to ceilings and "guidance", the The (targets) sent in years past. same as the former "plans" point out and the RDP Technical Analysis PADCO Regional Assessment in terms of a lack of these plans, or guidan:e, the inefficiencies the central to problems of the district. Yet of relevance prioritiCS and cite the precedence of national ministries more localized problem-areas. inter-district balance over often both by the Decentralization Act is supported The intent of a viable and as modern management theory as development as well literature repeatedly way to develop Nepal. Development efficient the control of resources stresses the maxim that the more direct the more likely the problems will be to address problems, is stressing the Management literature more and more alleviated. over programs if need for developing a sense of "ownership" and effective. The development of managers are to be motivated this key factor towards achievinig district plans is assuredly a objective. to fully district officers and politicians The incentives for the are fairly clear, but those for embrace Decentralization their not. It will presumably impruve central ministries are but will also cost-efficiencies in the short-term, management and such as RI)P must their power. Field-oriented programs decrease take ccre to try to conscious of this concern, and remain ownership of fieJ.d programs develop/maintain central ministries wherever possible.

- RAPTI ZONE: TIlE INSTITUTIONAL III. RURAL AREA DEVELOPMENT

A. The Phase I Design Assumptions was designed during As well recorded, the Phase I project Various documents produced for the four year period 1976-1980. FY 80 ranging from $11.5 million (All) the project gave it budgets Prefeasibility Presentation) to t 96 million (APROSC Congressional little discussion of 1977). The early documents included Study the AID-funded project. 11MG overall management of the programs or with the institutional or management had no policy to deal created a separate of such an undertaking. USAIU/N ramifications one project. office for the management of this

19 building o the design assumptions focussed on Early for local level undertaiings, heritage in the zone nascent socio-cultural capabilities at the the" gradually building 11MG/N first phase and for such efforts. Indeed, the district level to support programs and to build on existing 11MG/N emphasis was basically implementing a initial aim of successfully resources, with an prior to introducing percentage of planned activities on intra higher included a strong emphasis radical change. The design to keep funding levels s equity, purposely trying and inter-di trict to those of the hill districts District programs equal for Dang and resource base was greater. even though its population Systems" cluster of programmed for the "Farming in Altho:ugh funding 33 percent of planned expenditure, was approximately as feasible activities to cover as many programs fact the project tried noting: from each of these problems simultaneously ... b> attacking the widespread success the probability of achieving directions, the sum of the individual considerably and exceeds in rural increases of success. Experience strategies' probabilities local thresholds of credibility, Nepal suggests that the elite, and reduced opposition from participation, to be crossed through the are more likely as these self-reliance of combined strategies such sensitive application or two alone. were placed on only one than if reliance to predict which mix of ince it is impossible Project's However, be most effective, the strategy emphases will of project depend greatly on the ability soundness will necessary readjustments to identify and incorporate p.6) managers monitoring. (Project Paper, as informed through adept Project was to be undertaken by a The "adept monitoring" 1978, located in Tulsipur. In July Coordinator's Office (PCO) the Ministry of design Project was negotiated, when the RAD/RCUP request that 11MG appoint a would not accept USAID's persons. An Finance HMG had no policy for such Project Coordinator, as to head up a small appointed in January 1980, officer was finally to over 150 persons, 1984, the office had grown office. By As of April 1986, sanctioned excluding technical assistance. 66 percent of those to 76, with approximately positions were down to plan and monitor The PCO was not only supposed filled. and communications support, but to provide training for district programs, support, and procurement technical (engineering) level projects. Panchayat within HMG's "Integrated All of this fit totally Funding was provided Design" and related policies. with Development to line agencies for implementation, through Finance directly AID. By the time the efforts for 11MG and getting the PCO coordinating in 1982, the PCO was just Act was passed with the Decentralization essentially been established into full swing. It had legitimacy with the 'Zone's of MPLD, and slowly developed their authority personnel as a supporter of politicians and technical programs.2

20 staffing finally aligned policies and Although the center had and elsewhere, development efforts in Rapti to support the massive a profound effect on the 1984 several key events had by 1983 and Evaluation was severely (1) The AID-funded Mid-Term efforts: HMG commitment; (2) the of the project and of to what had critical were passed, providing teeth Decentralization By-Laws new (1981) and (3 AID Washington's formerly been rhetoric; strategies, one of requiring adherence to new administration began What "fit" there had to avoid multi-ministry projects. slowly which was and Rapti Zone, began to been, in Washington, Kathmandu, deteriorate. Realities and Constraints B. Current Implementation aimed to help more I Project, then, initially The Rapti Phase had been possible before. programs get implemented than that district staffing, targets--suggests data available--financial, All The technical analyses include this aim has been achieved. and in gains in HMG service availability summaries of impressive tree seedlings at selectei of wheat, rice, maize and those production groups have been formed, and locations. Many local assisted well. The WDO programs are functioning under SFDP and the strongly suggest that an and other relevant literature, needed now. analyses, than quantity, is what is emphasis on quality, rather as many attack rural poverty from The design also tried to which would admitting ignorance as to angles as possible, frankly notable quantitative - The final evaluation demonstrates work. components. Data for cross-component targets achieved in many impact on of the "integrated" or "coordinated" or analysis however, has only rarely developed alleviating rural poverty, Regional purposes. (see the 198S PALCO used for measurement including increased Some indices have been noted, Assessment). and the increasing commercialization monetization of the economy with :rew All) Monitoring--adcpt or not--combined in the zone. to narrow the efforts considerably now emphasize the need started. policies up to sustain what has been and work to get production as for IRD projects as fully The design followed H1MG policies and funding the building of the PCO complex possible, including organization. The districts accountrements of such an all other and need less institutional are now relatively well staffed support than before. constraints, however, continue A number of key cross-cutting Rapti Zone: to impede development in is the current overriding An inadequate financial system funds is 1. most cases, authority over short-term constraint, in officers) and Rs. 12 lakhs for gazetted adequate Icurrently level or position in well located at the proper theoretically numerous reports on the However, as noted in District the system. rarely released on time. Phase I project, funds were

21 releases and officers often wait several months for offices to meet basic living to borrow at commercial rates from had needed to absent themselves expenses. Key personnel The best qualified to track files around Kathmandu. posts development plans could still staff ready to carry out perfect do nothing in this situation. by a Plan Technical Analysis prepared 1iheFinancial Management staff member, and a U.S. consultant, USAID/RD team including representative offers Office of Controller General these an HMG system. The adoption of to improve this for RDP recommendations to resolve this constraint recommendations should help implementaLion. at the district and sub- The increased MG resence 2. ht tr ea te n evel osters deednie.s, significant increase district of efforts. Although the sustainability positive impact, there is provided has had a very in services presence of more government side as well. The appeais a negative in public sector spending employees and the increase political and self reliance attitudes among to have eroded Voluntary labor (shramadan) private groups and individuals. activities than before, particularly for is less conspicuous Panchayat Roads than one ward. For example, involving more shramadan is now paid by work formerly undertaken through intended forest watchers originally HMG. Nursery naikes and fact Committees are paid, and in to be paid by Forest system technicians by the DFC's. Village water supervised, Panchayats are paid by MPLD. that were to be paid by Village somewhat Panchayat revenues have increased Although District to expect the central most local persons now seem over time, efforts. Given very real government to fund most development or HMG (political and administrative budgetary constraints, to involve sides) must examine more ways technocratic private individuals in development non-governmental groups and efforts. local addressed by the private and This constraint is being of the program in line with the recommendations group Local Group Study. Technical Analysis and the 3. In spite of 20 Years of HMG efforts at coordination, interation, and cnraization,e ' "inev rti c - 9 it, el! ministries', e'i conte r t centi st practices cotinuingl! strong en t a t i o l l inepneneand ci e s and - 7 7 5i ...... e ...... t1...... l v e m cro ni tb u t e to in e f in Thre of scarc rsurce investment. that ecrease: the impact arcus wire analyses note two suistantive technical and critical activities have coordination does not occur production and the cracks": fodder and forest "fallen between redundancies occur, such management. In other areas, land use of multi purpose nurseries at as two agencies' establishment national Donor agencies support similar the same location. subsidies and staff level programs but offer different

22 system - mais must require different mciitorng more incentives and to purtue those means, of and incentives developed all levels be found, and human resources at efficiently utilizing financial of the system. to procedures as a mechanism RDP will use decentralization sp,.ciFic high The coordinated programs at establish effective district potential production sites. STRATEGY AND FORESTRY PRODUCTION IV. PROJECT AGRICULTURE A. Overall Strategy reiterated and other reasons AID has Based on historical development in the commitment to continue supporting its special has emphasized working within Rapti Zone. Prior commitment a relative balance sector institutions, with existing HMG public services. As noted at in productive and social of investment emphasis has yielded positive III above, this initial Section and visibility of public in terms of presence neither AID nor results accepted assumption that institutions. Given the activity on the high level of public sector HMG can sustain this an overall RDP strategy resources available to each, dwindling is indicated: emphasizing the following forest and to increase agricultural, 1) Fov,,sed programs in a sustainable fashion production and productivity implies a livestock of investments; this focus will be the cornerstone in that much of Rapti as well as sectoral focus, geographic potential. Zone has limited production focused programs in production, 2) Concurrent with these efforts in geographically focussed carefully planned and resource base and management of the land preservation forest) will be emphasized. (e.g., soil, water, and in production/ Returns from these investments 3) captured and fed into continuing preservation must than be Zone is to This is not to say that Rapti development efforts. Rather, means or isolated economically. be self-sustaining a portion of the economic must be found to both capture local resource mobilization and returns (through local and enterprises and to establish local groups reinvestment) and supporting local development. for managing local resources and Agriculture, Livestock, technical analyses for address Separate and for Private Local Groups Natural Resources/Forestry inefficiencies Given the constraints and these points. however, and the cross-cutting in those analyses, vertical line highlighted above, it is clear that the constraints summarized production gains in isolation cannot achieve agency programs strategy emphasizing building desired overtime. A cross-cutting technical, indigenous, "modern" political, the capacity of is required. Criteria for and private sector vertical programs administrative of the strategy vis a vis measuring the success in implementation, would include immediate cost-efficiencies

23 of services delivered, improved cost-effectiveness medium-term in sustainability of betiefits. longer-term improvements and follow: Specific strategic emphases at the Local Level. B. Private Sector Stimulation and to stimulation of the ward Greatly increased attention The is critical to program viability. village private sector and/or all individuals, cannot reach all areas can government simply private sector activities and private or government-stimulated to be focussed on its efforts. Attention needs greatly complement government assisted but groups and individuals in ways to activate development endeavors. privately managed and sustained are many groups and individuals As noted at Section II.D., achieved" by assisted in terms of "target noted as having been all functional in terms The only ones that are at line agencies. formed under the Small activities are the groups that of productive The key problem has been Development Program (SFDP). for Farmer have been given responsibility the various "users" groups management, forest management, irrigation certain functions, i.e., that responsibility. being given any means to exercise are without be most useful to these groups Means that would appear to to function, and technical and managerial--required skills--both manage to sustain the group resources--especially cash--to endeavors. of how to organize a group, managerial skills, in terms to make a Basic to define priorities, how to conduct a meeting, how Nepal when how for group activities in rural plan, are well understood need be undertaken. single function activities time-limited, to cons rUCt water systems, have effectively organized Certain Groups repair trails, and roof schools. build bridges, annually of indigenous activities, notably management multi-function based on repetitive tasks systems, are carried out, may irrigation longer term activities which time. Group management for or over such as water system maintenance not have repetitive tasks, sustained success. have generally not met with forest management, needs for functional groups efforts at defining skills groups Increased skills are essential if the and providing training in those are to operate over time. the groups need something to In addition to skills, however, and provides relatively short-term manage that is visible a number of potential The Technical Analysis details that benefits. forestry and fodder activities income-generating agriculture, Policies and efforts short-term financial payoffs. can yield control funds will have an groups to generate and in enabling of generating more interest extremely high payoff in terms 11MG/N and thus decreasing dependencies on group activities, of services. Provision creating more cost-efficient delivery

24 and/or is already part of 11MG policy for this type of transition Credit and simply must be made reality. law in most cases and in line agency available from the banks and "seed money" are provide further support, to foster this work. RDP will programs to make it happen. encouragement and supervision which individual private sector activities, Stimulation of of groups, be more profit-motivated than those would generally sectors, especially provision also be accelerated in critical must revision of leased forest of production inputs. Speedy to take indicated in Rapti Zone in order legislation is very much loans. ADB/N provision for forestry advantage of the new must be assisted in Forestry and Livestock personnel Agriculture, for provision of seeds, identifying promising entrepreneurs link the and vaccines and in helping fertilizer, seedlings capital. Simply with credit outlets for operating entrepreneurs and location-specific needs, stated, given management efficiencies HMG in most can provide inputs better than the private sector programs already most policies provide for this, cases. Again, funds are available to and either bank or line agency exist, simply needs reinforcement. assist. The strategic emphasis of ways. will be provided in a number This reiniorcement line agency personnel will district and sub-district level Certain formation and organizational receive skills training in group including persons at the district level, development. Certain sort of work. Officers, are adept at this Women's Development are especially skilled. Group Organizers for SFDP groups ADB/N it appears that a short-term For most Users Groups, however, particularly Nepali contractor or PVO--are outside efforts--either personnel will focus in on These technical assistance on indicated. that already exist on paper, and activating and training groups line agency between group leaders and HMG helping form linkages for individual will also serve a liaison role personnel. They credit and skiLLs in terms of helping access entrepreneurs other levels. training at the district or and other countries have tried It should be noted that Nepal ,ral village development workers" to develop such "multi-sec program. In during the 1950's Block Development before, i.e. generally unsuccessful elsewhere, this approach was Nepal and a large bureaucratic structure because of the tendency to develop given In addition, most workers were to support the efforts. rarely successful many skills areas that they were training in so periodic infusion of suggested the short-term and in any. It is is a more efficient and trainers and technical assistance outside skills among the private way to try to build those goverimemital effective another vertical or horizontal citizens than creating level technical personnel level. The sub-district and district and will on their technical subject matter, can then concentrate rapidly through the more to diffuse this knowledge more be able groups. active and responsive private

25 C. Development Management Training unit that Panchayat in Nepal is an administrative A Village settlement, caste/ethnic group, encompasses more than one directly often type. Pradhan Panchas are ecosystem, and/or land-use nonsalaried are accorded respect for their elected, and usually salaried employees of Village Panchayat Secretaries, positions. they have traditionally been are also respected in that in the MPLD, powerful indigenous structures selected from among the more area. district level but still nascent state of Given the improving in Nepal), it must be in the Rapti Zone (and elsewhere apt to planning Panchayat planning is not that the level of Village of the assumed the project period. In termms improve dramatically during then, tied production focus being recommended, more geographically defined Village Panchayat is politically and administratively but the to the formal planning process, not strategically important resource of productive endeavors. Village more to the management but their use as should be made and maintained, inventories much more at the District tools should be emphasized planning than as an end in themselves. level with line agency personnel at the Village the 8 year project period Emphasis during the ability of level will be on enhancing Panchayat Pancha and the Secretary, to leaders, particularly the Pradhan Ihose of developiiCnt in their panchiayaLs. manage implementation useful role in absorbing are literate can play a particularly who costs--particularly of the non-monetized transaction and private non-governmental user groups accounting--of help groups and individuals in their areas. All can and entrepreneurs better deal with community management in their constituencies periodic orientation seminars common property issues. Certainly, emphasis on process can be supported, but on the Decentralization cost-effective and than planning will be more management rather Successful implementation of have a the greater impact overall. in the be they private or public sector, development activities, effect for these will have a greater motivating panchayat planning seminar might. political leaders than any on potential and Demand D. Production Support based unit in areas The Ilaka is a useful political-administrative and greater public sector activity of higher population density sub-district Zone. The HMG/N policy to cluster than that of Rapti level makes sense in Service Centers at the Ilaka and offices into locations, based on population certain areas. There are some specialty where demand for only one technical the iesources base, Sub-Center in Takasera. as suggested by the Veterinary is needed, more than one Sub-Center of one There are other locations where may be indicated, particularly along fertile river for specialty Rolpa, where demonstrated need in Salyan, P uthan and full array of valleys the establishment of a JT/JTA's is high. Wile

26 . I ai S" lik" :!t1 Akt

grovitl IhI 1: u mowic s i .:I i.n C ': a'dt. "1 1! n'L- ot~I

L rA :tsCSu c ht ra'v :cc. : H edi p a si' 0..' tiL r. 1-d z'~

uch, be~k.!*..tLI'.' ::~I ep h-5Sil ouitl( t,-., c . I"w - o. CL~ s prox~di'ci'* it ' t fit .'IC I Assesmell U~(Uhi~h 0 11 I s 3III - I 'u* ' c ' nt I e r~~ L.Lc\ 1' 0*'i~~r ng1 it~iit U- i t %toc L i u . 01~~~ -u-eU.1 *t II. l'C1 I cSII1,t e b..v2L..,..o r...f;.'I plnof! Ci J VC'dtk 12:.' o I'..'.

'?! C I-o f .,. rIf:vi';Una ~u- ill' jc s~hC rcC.0 on ,( ;ii u'(;i.,V un!i e s a S tI 'C L t. C.iv,: cj L I urd

- r.,). -_ i i na .L oi Ais r ci i :I

r.*. nf i I scTc ItC''~e4 Di c c iI I:I ~ Ia.io.A'it IW hs

P.eg iui APROSC ReoiiiiviI 'v'..- , r I! c .1 9'1) PADCO !,)~ em-yha s iz'u deve'lopmenit uq. 2. Asses sineut lii;~1 . the iwr' , inr kp,. t o disd t rict - b", di st r c, -zatlwr t' in -opal,' bazi , v er, '-i;:, s s 10 y~ 'I u, f rt:epu t)C't iIl Is UaX'II o-we Afte r i mo 1 1 'b(. i lig Oil 1ts' pur!3u i dec i ~ion-makers s ? iI secem to work ratherI ina ieme Iic/ cen~tral'eU'thL ref Lexive 51 111 agricultur! 'o I ic r F., f or iiwp'1c , Li I I l ucd's et'AI)1 1-..1' C . vast ly di im i ar i . I c.t s U SAI D/N . undii -I Co ia.across Ba s~ u oil''as: 'is a inmoS t equ i v :I I~xI R'" .I m 1. I Pk': a i .:, piu a'a111 and im y''- dta *6 now~ dVb] lab le fi I'j increased nr,,cd to szarL- LyinP purposes, t he s d(ec i s ioi I I ;.tk e-. ayi ug' investmnit' 'more c :: l Lu i~i~t the ddatd a

i.h~i.ri C flls t u,,' L~ ' . TheT" invet tm-r L natter, ari d th t v veLto de'vc It)pine~cLIti ;:i a t. v, n ix'estmie nct 'i 1) 'ailanl Vduda .3urL ri n Io morc1ydilp.Ki Rolpa and Rwki ," i: v iC i l :1.11 Vr'1rduI I ow0 0:3 IS itn i n p rus',r ill. PLIU IM.L ; i' i v e St o ck aila 1v e *ntr s e y, suggests mnore WO~ prlograms. mui . fr.lA Rulpa . a d Dan g . C_-Cppiit1 Systeins, northern' q;l I'"I. to.i 'pot n-ltial. ('rtalnl> int erdi strjciut the "land Is piroiuct 'e ncr sh~uild *ema in' ai c n 1 de ra t ionb ii t h~J ib in tre a s p r ~dtU C. L"

4, v ""'"a.

a' . "''a'a 2. Project Strategy equity will also remain a First, intra-district to areas of empahsis under RDP will be given consideration, but the Panchayat potential. Development of greater production information base that can Inventory (PRI) as an technical Other Resource will be an important tool. be used to locate RDP activities practice the common District Panchayat strategies for dealing with across programs up as equally as possible of dividing development Using the PRI and are suggested in other analyses. panchayats can help line agency personnel available technical data, USAID that makes sense in developmental lobby for spatial distribution Priority will be given to completing as well as political terms. its Local Development Office in the PRI and assisting the and monitoring tool. effective use as a planning be viewed as a HMG project support should Second, USAID and "regular" and their is not a separation of joint program so that The policy activities in district plans. " apti IRD" program agricultural, forestry that the officer's work is should emphasize seemingly innocuous act, development overall. This or livestock in overcoming the pervasive and circulated, may help somehow "extra" if written the Rapti program is that work funded under notion "extra" perquisites. work for which one should receive help district line should be made under RDP to Third, efforts as external and better cope with their roles agency officers process. Although in the district development temporary advisors "programs are to be rhetoric state correctly that USAID and HMG personnel must begin through line agencies", district participation toimplemented more actively stimulate sustained and meaningful types of skill political groups. Various of local user and can be provided such as organizational development, training, regard. As advisors to officers to help them in this technical agency officers continue to district's inhabitants, line tion. the skills training and informn technical and managerial basis require on a more problems-specific support should be provided This than in the ?ast. (i.e. relevant short courses) district to try to make production-oriented Fourth, RDP needs key assumption attractive. To restate a development politically of development "successful implementation from Section IV.C., in the panchayat be they private or public sector, activities, effect for these political leaders will have a greater motivating holds true seminar might." The same assumption than any planning planning a whole. Rather than general for the district as politician's role strategy emphasizes the district seminars, the through improved management implementing His Majesty's policies in the development process. and monitoring/supervision of

28 planning and Coordination 3. Project p-.-grams for District Office's a. Increase the Local Development E ticiency. that the LDO has what amounts Section II.F. notes avoid the job. Both USAID and 11MG should to almost an impossible it better. Where the LDO can do more, and do tendency to assume staff should be developed the skills of his subordinate is that possible, load. A second recommendation to lessen his supervisory Panchayat Secretaries training be provided to Village for management burden. Another suggestion is one means of decreasing his auspices. as the Revenue Offices under his consultancies to assist and staff development continue the technical assistance RDP should Technical Offices and Women's thus far provided to District Peace including the provision of counterpart Development Officers, Training for LDO accounts Volunteers where indicated. Corps section is indicated. Finally, personnel and the new procurement entire DP Secretariat develonment seminars for the organizational lists the recommended local training should be explored. 'able 2 programs under the Project. motitorilg b. Improve the data base for planning and and supplementary data gathering Field verification (PRI). Panchayat Resource Inventory is underway to complete the design. it important tool for project This data base has been an tool for the important planning and monitoring can similarly be an agencies. RDP will the LDO, and district line District Panchayat, offices for maintaining to provide support to the district the need training to gain support for and updating the PRI and for fully data base that they may not concepts and use of such a understand. Management SkirLs c. Imrove Panchayat Officials' the Village Panchayat Following recommendations for provision of basic management to more actively assist in officials recommended that District for private groups, it is public skills in and become more active in Panchayat officials be trained have and management. The DP members sector administration way in the MPLD involved themselves in this historically should continue and be grant-in-aid program, and that regard to as was earlier pointed out with strengthened. However, is only effective if user groups, ceding of authority ward-level to manage resources. The DP's authority is then exercised Development, the authority to manage District have now been given the not changed at available to them to do so have but the resources can still blame it on Kathmandu. all. If activities fail, they while in opera-tional decision-making, Involving them more create more of a sense of risky in certain areas, should somewhat than has heretofore existed. ownership of district level plans 29 Table 26 ------Illustrative Local Training Plan' -~~------!Iota! ------I----- Number of Training Sessions > ...'...... ------Type of Training ,Particpints---- -do------. Location . air . " ------'------~ 2 13 14 15 16 17 9: a onh -'.Dys)i~roup: a~ .-- -.

---.. - '' * ' ' it. Zonal Level Training: PSO Organized 101 1 1 111 1 1 1 1 1 1 a 11 OffcriPSO M; PSO 1 31 • 10 11 4 14) 1. Planning & monitoring IDistrict 1$1 TA.... 6 1 1151 0 1 1l, 0 01 4141 IDistrict!WlIVls OffcrslPSO',ovt. Farm HnG Staf ..6, ....20 1 1 1Z0 1 1 1 0 1 +1 1,:.2.TrainersTraininA' .ainers Trin n 011:01..0,0111 J. 1" 61 10 FireFarm.. ItMtIGG Staff 1 61 o 0, I, 0, 0 i- 1 0 1 1 19 1 3.Cereals production IJTI..TIJss.. , urseryI6ovt.....,O... Vegetable and Fruit 1 4. 1 1 !Orchard Manager! i11 11 .....1 9I,8 i Production Training in Nepal; 101o.25 1, 1. 1 5. Farmings Systems Study Tr.WIN/TA;Farmers!Sites 2 i , ,11111111 111"I : 1 6. Nursery Management lNursery.Naikei ,PSOIpuiPur ,DFCLTI_1 1 1 11 1 B 489 Nepal!LT,DFC,PSOh 6 I 25 1 ,1111 1 11 Mgt. Study Tour IPanchayat ForestSites in I 7. Forestry i i1111 I :11 I IComitteesl a " 91 192 t 30 1 2A I I1 1 1 1111 1 1 1 11 Gua'd iPSO DFCRan rl 4 5' . Forest Guard Training IForest 0 h1 0 i11.. r0 1 i 0 8. . FC ADO 3 10 .9 Agro-Forestry IRangers; JT/JTAIPSO IamrLT &ST IA: a ES 1 1 1 05i0.1111 0I 0 0 '1440 2 1 4 SupervisortSites in NepalNePali 1 20 1. 10. Construction management !Site ,1 1 1 I 1 1 1 . Sub-overseers! Kith. I Otherl lnstitutel S1& 0 0 I i 1 1 0 1 11 4 59s ISites in NepallPrivate i 30: 121 Irrigation improvements: !Overseers. i i 11. :consul atn r ' . * and construction I a * a a designa 9 9 -I7 9. 7 7 i 6 618 a 1 I 6 I 9 9 . Subtotal Zonal Level , .

aI' k : a. r !Cantr .. 5 IiA , Agriculture-' .g, Input Systes Norashop " 1 5 1 5 3 l st: . f. - 1- , .5n 1 2 : - lr n g " .:L e a d e r Fa r m e r !D s.H r. i t. . .5,-M 5 5 1 0 ,2 . Ag . Fi e l d As s i s t . 20,'55.,5 a 5. ,65. aoas'ltan I 9ist. Center / !:,Ha! n s -tf a :-a 13. andstorageltrainingCereals seed p roduction I'!Farmers l and aAs S S 1 , 1 10 1 10 75 r ers !a.Diist. Cent*er M 2 a1 25'a 5 I . Cereals production !Fam '2 0 14 ,01011:01. 10.. 10 10 :6 32552 IDist ubCenter e iA'ersJ iLTnTACrop: I A S : 42..... 1 5 10 15: 515 ! ~1" 5. Cereals productionkProduction !Farmers.. TITAs;FAs Ir:! j; st ei" : , . .. -i i: I..! ,> *i L ;Aq, ,=ulcenterS ,Sy I . ,ethM: o'dolog0ie 1512151 15 1 1 1 71 ..g ' Farmers i..t...re. :Siist :g7. Frticulture I s T, 21 2 1 41151511 1.1 0164 51 i . eHorticulure/Cash Crop iFarmers an lOnuarC 15 1 4 2 1 10 2 1 4 !861'!.[ 1 H !NItursery-eanagerlOn-farI 1:LonSuLT,ST TAI:•1 ,TAnt a" a2 "sa2 a 2 1 a 2 a a ::,iS 9.. Pvt.Hor Nurserylture Managementstorge. Center i60 J 1 i 2 4g.ucne5JIl/B1 6120 80 140 :9140 140 14 1401150'7 strca ing i~res SubtCerals pgroducton 1 1 te , T A 1 21 5 1 1I 1 1 0 1 1 4t PS sin compos ftodder I A0O,m. ,,a-,ist. ! Cen - -,an d ag r -fo r e s t r y !>FC , D S C ,W D O 1.

' ' 91'" 39 6. 2 1( 1 1:11 a 11..... 1 ': - - -fuio farm"'';i-lpeials - L mer - 7:1 Horotiour BrLvestc -' - - 1 16 a FFre or L!HM t Cif; 1 5 1 10 1 2 10 1 Foran Prod c tion6JTJTAovt.; 5i , 5 , : -i TA i; i-' ,I ...... 1S-T 1 .5. 1.. 5 >1 5 3 l I: 'Production . .: st af f 15 aa1 , - a.- tr ic t s : ,HM procesingimangers!'Le a d e r F ar m e r s !D is - .' l "*L:ic F i l A" s t k Sub 2 3 :50i#,150 ::50 150::,63,: 265 1 2 ar er's • : : . Li ves toc -!M tf 0 1 i ' 3. For'ageProd . ctioPr'od.,•.centers ,"Anizal[ ! :" F m a5110 1Q1016 : TA 1 1 ...011. i 251a555 51 a 4. HerdiMt. StallCopi s I !Farmers On-far HMGStaf 61 101 5, a.10 Hort"clts and !JTIJTA!aDistictr

a a it. Parasitology; :: /: iHospital- 30a IllustratiVe Local Training Plan ------

-.------*------7 r " l Number of Trainin g esslos "rI *GI : I 1 Location Traineri t79 9 al!M,0 Type ofraining Participants • !(Dy)6rou P11 13 45:6

Staff 1 mers !rIDistrict Yet. 1H 6. Animal Husbandry *' * *' . 101Hospital !IAAS btff'. 10 i29 !52 172 177 17 24449 IIH , . . SubttalLivetock. :i19 1 a nt.,LlS :IA , i: : . i l [C. Forestry 5 2i211 2 12 11 16 1 1 Cos!District Cent. IST IA 1 31 110 20'12 :25 25 25' 25 121,60 i I :2 i/!1. Community forestry worksho:Dist.Forest ,Panchayat , 1 2 15 2. Local forest management !Forestry User Groups o1 " I I " 1 1 I 9 1 5 12 1 15 1 1 H111 1 11 1 1 IDistrict Cent.IDFC,F6,RanI 11 13.Tree climbing t seed 1 I I1 i 1 G LTTA,Nat.SIed 9 i1 . collection training 5 111; 1 1i 11 I i lo ,Iraining I 10 1 Mgt. Study ur !DFCIDSCO,Rangeriln-country :20 120 120 120 :160 1 u. 4. Forest 1DSCO Overs; I 20 120 120 20 :') education !Farmers !District 4 a0 *+a ;a:9, 5. Conservation ' ' ' , .. ... 149 .352403 . 34 144 149. 149. . 49 .a149 a " I. . . " I .* , 9 9 I .. . 1" Subtotal.. . Forestry.a Ii 1 5401 1? ID. Local evlopmentOffice TA 1 21 6 1151 5:515:5:5 tDis. Off.& LDO IDistrict Cent.ILDO; J5 29 1 1. AnnualDistrict Workshop 151.3 5 5 5 5 5 1 istrict Cent.ILDO; P 1 21 10 21 Workshop IDist. Panchayat 2.Planning . . .. a " . CommitteIe lb, . . .. , , 1 1 , 9 :2 , 3 1 5 1 5 .55 35 !istrict Cent.L Social I 1 20 i 3. Planning Modgt.Workshop IPradhan Panch: 2 i i 1 !Sc. ST Fac. . 1 NP Secretaries 1 2122t122 16 1 12 IistrictD Cent. IST Facili. 31 61 12 4. Project Accounting Seminar:Line Agency 1, i ia A IPSO Accounl i a l a * !Accountants -. a a3 a" 2 I''2 2 161 aal'TF tA ,ii 31 6 2 2 2 12 2 ... 21 ... !Dlistrict Cent.ST Facili. 5. Financial Mgt. Seminar ILine Agency A ,+ ... :OfficersLT 1 1 a1' I 1 5 19 :1 : • Subtotal;Local Development OIf 11421 i.. Sbt LoclmD evelopment Office i . 0 2 15 I 1 10 11 1 22 12" Farmers IDistricts WDO; ADO t. Agricultural Study Tour ..omen 1 2 111 2 1 2 2;2 5 B uistricts NWO; ADO 1 101: Horticulture Study Tour NIomen Farmers i5 5 1: 31 1 12. DFC; P 0 2:1 5 1 1.2 :35,15. IVillage Women District 4" " 13. Forest Mgt. Training 16 '1 2 5 5 1'5 1"5 5 5 a5 37 :Women Farmers :oistricts .1HM staff B 1' 4. Ag. Field Assistant Trng. 1 511 1 11 [111111 !Districts !HMG staff 1 6 INomen Farmers I a' a:+! +a :5. Liv. Workers Training I I ;. .1 L .1 . ... d A. s F e 1,A . +' . 611115151 1 115 1106 1~b' Subtotal Women Development * , ...... I . , s , ,... Technical.F. Officel 91 909I3.r. . I. District IS OE ng ' 0P61)0 6 11.. 11 1 0' 0U 1 bridge design OverseeriEng.n :Districts 10 ,++ 1 1. Suspension a' ' ' ~ ~ 9' 1ST3 TA i0 a . 0IH 101110' 1 i U 139 i and constructionl. and !Kathmandu/ ',Itobe'. 1 301 101i 2Project Management . DTOsLDOs, 1 oi,Dis.Centers 31 1 '!to .0be 151 U Iantenance1 1 Rural Works !Users."15.1 Groups t101 i 9 9 0 39 4 9 :3. parts LDO/PSO 1 15 1 3000 1 i 01 Community management of Iillage Leadersivarious i i •4. a i rural works projects • " ;;+':::I.. " ...... : ...... v...... + ...... f;, * , ' 9'+i!,1 ,12 1; 'i.i~ .. .+urlrA, .. 2 1I I2 r e r E g ,, .9Ss '-' , 0122 o re d s e de i n , v 'i. ' - Technical Office ------Subtotal District ------9------., . . ------Total for Project -- - - -" - "- ,- ..,: ... - - .- -..- - - . e k r - -, --7-t ------' se r 6r o s.'- -" - ' ------'V*9 9't . ------

V

-30a- that District Pancayat.s receive Previous sections have noted they normally allocated to MPLD block grant each year that an dividing the grant equally visible small rural works, frequently in have gained little exp:rience among all panchayats. They thus they productive activities. Although planning and managing more the in line agency sectoral plans, are now to be more involved As experience that this is apt to take time. discussion has noted it is likely that with the decentralization procedures is gained the District Development of district funds within DP programming District already) move will (as has been done in Salyan Plan to also include other sectoral beyond only rural works activities force collaboration of DI' members activities. This will further in as they will need assistance with the technical ministries, projects. determining the feasibility of d. Increase Local Resource Generation more funds under Providing the politicians with is apt to involve them in district their specific control the any planning seminar. Although development more than be adopted for Land Tax (PDLT) is not apt to Panchayat Development can increase probably ways in which districts some time, there are should provide within existing programs. RDP resource generation the District local consultants to work with some expatriate and their efficiency offices to identify ways of increasing Revenue for collection. That is to possibly expanding their venues and new taxes. maximize collections, not impose Controller has recently Also, the Salyan District Forest sector firm for collection of contracted with a Nepali private will provide income to the pine resin in the district, which employment. Although the national account as well as local Technical Analysis cautions against Natural Resources/Forest some of the existing of pines, the speedy registry of plantation enable the local Panchayat Protected Forests would stands as of the revenue from Forest Committees to keep 8S percent (private) revenues at the Village contract. Generation of such this funds--would again help focus Panchayat level--although not public Rolpa and Pyuthan also possess politician's eyes on development. be rationally exploited by the mature pine stands that could private sector. Treasury Personnel e. Improve the Skills of District be improving financial flows cannot The importance of line Treasury Officers, and all district overstated. The District and must be offered accelerated training agenLy accountants, have programs at all. if the productive sectors are to incentives the Financial Management Technical This need is fully discussed in procedural and training Analysis and several staffing, recommendations are given.

31 Program B. Women in Development

i. Experience to Date I of the Rapti integrated At the beginning of Phase specific women 's Project, (No. 367-0129) no Rural Development the Project. During the component was included in development the need for women few years of project implementation, not have first since the line agencies did specific programs was felt to Rapti's for channeling needed resources targeted priorities women targeted Realizing this need of a female inhabitants. added a program called the Phase I Rapti Project program, a UNICEF-initiated nationwide Credit for Rural Women, of Production Section of the Ministry run by the Women Development the program with credit funding from Panchayat and Local Development, and Rastriya banks (Nepal Bank Limited government owned commercial Scheme. The main under a Priority Sector Credit Banijya Bank) (a) to increase the the PCRW program have been objectives of and planning feasible of poor rural women by identifying of income (b) to facilitate the flow small-scale production activities; projects inputs necessary to make these credit and other essential viable, self-reliant to organize rural women into successful; (c) community development of initiating and undertaking to groups capable and their families; and, (d) activities that benefit them to work with capacity of MPLD personnel develop the institutional and rural banks, expatriate volunteers line agencies, commercial resources to and to channel appropriate women and their families The main and community activities. support income-generating skill training is on income generating, emphasis of this program activities. and community development 1983 started this program in December Phase I Rapti Project this program a in Dang District. To implement (NFY 041/42), first Volunteer (PCV) or Officer (WDO), Peace Corps Women Development Workers (WW) work together. Associates (DA) and Women Development and four bAs (in Dang, five WDOs (one in each district ) Currently posted in the Rapti Zone. Rukum, and Rolpa) have been Salyan, and villagers to initiate and They work with LDOs, line agencies selected areas of each district. implement WID activities in in the small 1983 and until now, good progress From December and community been made in providing skills target areas has seminars in such activities and initiating practical development as family planning, and environmentally important topics socially forestry, and compost first aid, agriculture and nutrition, have been given to over 214 Adult literacy classes group fertilizer. Twenty seven (27) womnvi's in the 5 districts. taken individuals organized, of which 109 have comprising 140 women have been loans 46 . Approximately 67% of these loans amounting to Rs.75,9 agriculture and 33% on income have been on livestock and shops and knitting machines. generating activities like Erom the village women, have profited Communities, specially stoves. seeds, tree seedlings and smokeless distribution of distributed to village 2,146 packets of seeds have been Altogether the achievements to date. women. Table 3 summarizes

32 7~. Ind Training Achilvuyflts ~PhaseI PCRW Program ------TabI.3 Tabl------

'RUUM TOTAL 1DANS i SALYAN IPYUTHAN 1ROLPA------:G* IN NRITINUnitGRU OUO M TO 25. 14U a !.TOTAL NO. OF WOMEN ,Persons : 54: '-44 a :- ' . 1 [ 7 .. '- 10: ~ . 4 e 1 :TOTAL NO. OF GROUPS - Braups 1

A ------

1 719 TAKERS No. Loans! 42? 3a I ' !TOTAL NO. OF WOMEN LOAN ' i8

2') 16 CNo. Loans 2 i ' ARICULTURE . .10. . !SHOP.

!OTHERS

TOTAL LOAN AM.OUNT Rs. 2 9,400 ----7 ---

MCOIUNITY DEVELOPMENT & TRAINING . ,a

? ' :LIV. L ANIMlAL HEALTH TRAINING Week L 5 14 A RTICIPNT.Pes.. . . 0. !NO. OF , ;.i 51 : 1o-0Ct.~ > LIVESTOCK 'ASST. TRAINING We ekS 9 50I] 7'! 7 14 1 :DURATION I WEEKS) Persons 1 ,ARICULTURE TRAINING. a . , *' :MAIZE FARMING TRAINING 95 15.1 ''' . ! TOE YPLANTATION 40 4 I ' 50 :IMPROVED STOVES' No.441 7950 5 TREE SEEDLING DISTRI UTION o. No. PL.a 1000 0 -VEGETABLE SEED DISTRIBUTION ' a Weeks a 5 :PRIMARY HEALTH TREATMENT 5 ;O. OF PARTICIPANTS Personsa - CENTER ESTABLISHMENT NoT 7 i!FIRST-AID

," 9 ' :PIT LATRINE CONSTRUCTION No. 3 7 j TREATMENT ;-No. a 93 14 I a FIRST-AID No. i 21 3 " 1a,11 :LITERACY CLASS {'""-"Ho,{' 30170:,. 1 ":/ . Days 1 F 80.20> g : 1.. .. 20 90 , !TOTAL DURATIONS. . ... OF .CLASS...... , 3 1141'' <"~' Persons ,70 1 66? 91' 20 3' liOTAL- NO. OF PARTICIPANTS 7. Daysj ' 27.?''45'? .- ;*:a--'~.-'55..''7 :HOSIERY TRAINING 7'-< 9.' Persons a 14 V' 25?4' NO. OF PARTICIPANTS T 7. !TOTAL 7 Days '. 71. , - . j a !HANDICRAFT TRAINI-46 9 Persons 1 a9 TJAL NO. OF1 PARTICIPANTS 60 La90 90? go a ISEWING TRAINING; Dys I_ OF PARTICIPANTS Pe.n10 2? 1 1 ~ 7 :TOTAL NO. Days 30 !FIRST-AID TRAINING 4a ~ 'Personsa TOTAL NO. OF PARTICIPANTS 4T a 19' Days to10 I MEETINGS1 Ca'P !ISEMINARS a 390 1 6.470 OF PARTICIPANTS , PersonsI :.TOTAL. NO. Days 30 1 15s 15 160, :STUDY TOURS' Pesn 5 1 '6 :TOTAL NO. OFPARTICIPANTS', esn 5 II9 I 3- - ' - - .' 1 .77:DRINKING WATER7' :TOILET CONSTRUCTION - No. . { : '- - SCHOOL BUILD. CONSTRUCTION No . a ,PRIMARY a ' aa''' aFAMILY PLANNING OR[ENITATIO~' Days , ' Iesn a 10-'- '7 -a.:6' .:No, OF PART ICIPA'NTS. -~ ' 7 . '~''j7'-5." -'-'&:~ / 6 'CHILD CARE L HEALTH TRAINING: Days- 1a---" 15 - ,W1~-r.~.~--7' PARTICIPANTS, < '' Persons .'77~77 . NO. OF ------. ------~-' ------' - -'- 7- - - - '-- - - ~777~"7;,'/7'7- - - - 7- --- ~ - 7 " 7 --' .. -'77777.~-~1--733- -' ' '" '" Table 4

NFY 2043/044 9ID Program Su:uary ------. .. .. : ...... Rukum .Salyan :Nl.Progras!Target/Objective jUnits :Total fang :Pyuthan:Roipa

25: 5 .5 5 5 :1 :Aforestation Ha 7 : 2: 1 I I 2 1 2 :Seeds Distribution :PktON 155 1 50 20: 20 25: 40 3 !Kitchen Garden Training :Person : 5: 5 5 5 i 4 ;Forestry Training (3wks) :Person

5 :Potato Chips I Fapad making :Person 20: 20 a

6 :PopcornlPuffed Rice Training :Person 30: :0 25 i5 S7 :Singer Training (lwk) :Person 5 1 29 8 5 5 5 1 8 !Women Ag. Asst Training tPerson

35 to 5 5 5 if): S9 MLvestock Training (4wks) !Person 1 5 5 :10 !Ceramic Training !Person

63 a 20 10 10 15 i M1 :Observation Tour - Women Person

300 60 60 60 60 60 112 !Functional Literacy :Person t :13 Horticulturerif) Training :Person t

IS 15 114 mal:ing Training aJaslJellyaPerson1

5: :15 Pickle (Achar) Training :Person 15 550o :16 !Squash Making Training :Person 35 : 200 200 100 117 :Fruit Spaing Distribution No. 500 20 :18 :Credit Group Formation :Group 20 :

5 : 60.0...0 19 :Fomunity Group Formation :Group ------o ------' ---- ' : ------. .. .------

- 34 - Evaluati On, conducted in October The Phase I Rapti Project of the for the PCRW program. Much 1985 marked a turning point such as minimal was negative, pointing out shortcomings evaluation restricted geographic area, for the women involved, lack of benefit production programs and inadequate and ineffective As the result of this district line agencies. the coorination with program was redesigncd at report, the existing PCRW focuses on evaluation WID program was begun that of NFY 2042/43 and a new Rapti Zone. The end activities for women in the developing productive women into line agency also try to integrate more programs will The WID program in the Rapti and training programs. WID, which extension based on A.I.D.'s policy on Development Project will be for has expressed a policy preference for a number of years rather than focussing women into mainstream programs, integrating or components. on discrete women's programs in which the PCRW will be a transition year NFY 2043/44 WID Drogram with focus on will be changed to an overall and program in the Agriculture, Livestock production activities program. Two supporting the planned NFY 2043/044 Forestry. Table 4 presents this fiscal to work in the District Centers WDOs will be assigned five WDOs will be end of this fiscal year all year and by the in the District Centers will the District Centers. WDOs district. moved to all WID activities in the be responsible for supporting Program in Rapti 2. Constraints to the WID Extension a. Lack of Women in Agriculture Rapti are almost HMG extension services in Existing important decision by men. However, women are entirely provided prolu..iun decisions. for many agriculture and livestock is makers extension program and structure reach these women, a better and keep women To very difficult to recruit necessary. It has proven is to recruit The more promising approach JT/JTAS to the field. Assistants and to women farmers as Agriculture and train local groups for programs like and support women management organize and livestock production. SFDP, community forestry, in Forestry b. Lack of Women's Involvement responsible for the collection Women are largely the their traditional place in use of fuel and fodder, but role in many and them from taking an active social structure prevents women may in fact reforestation program. The government sponsored is the men who planting seedlings, but it participate in mectiligs, who Fo-11 the training and orientation of the participate in as naikes and guards. Part forest committees and who serve Forest field percent of the Department of problem is that 100 not present role models is male, a fact which does staff in Rapti at meetings. on elicit strong women's attendance 35 C. Tradition and Culture to are traditionally differential Nepalese women Although wumen in Rapti are no exception. men and, of course, (90% as estimated the household production work women do most of agriculture and status of women reports) for in one of the training not in agriculture they continue to be offered livestock knitting, sewing etc. but in other such as hosiery, d. Credit Access WDOs and DAs working One of the responsibilities of Zone is to make available loans in WID activities in the Rapti loans have rural women. Most of these from commercial banks to Normally it is on buying livestock and on agriculture. been spent credit from the bank. The WDO difficult for women to obtain very women to obtain loans. works as a mediator for these e. Geographic Area have been WID activities in the Rapti Zone To date of 3 village a few village panchayats (a maximum restricted to are 40 to 50 panchayats in a panchayats in any one district--there WDOs will be the Rapti Development Project, district). During on district-wide programs to the District Center and focus posted will be focussed on a limited even through specific WID programs number of panchayats. Program 3. The RDP Women in Development a. Objective for RDP will be: The objective of the WID program income of rural women through 1) to increase productivity and in agriculture, livestock, specific productive activities and beneficiaries 2) to involve women as participants forestry; 3) to integrate more women as in all project activities; and, extension and training personnel. b. Program Focus implement the RDP The major line agencies that will LDO) have very few women agriculture, forestry, livestock, (i.e. amount of seasonal migration of staff. However, because of high wife is often left to head the males to for work, the could productive decisions. Women agents household and to make makers than their deal with these women decision more effectively focussed on agriculture, male counterparts. As the RDP will be WDO will similarly focus in these areas, livestock and forestry, be used to support WID non-RDP funded activities may although child care, hcalth, program activities in other bectors (e.g. water, building construction, and adult literacy, drinking allocated from Funds for these programs should be nutrition). from other donors. HMG/N's grant-in-aid fund or

36 c. Strategies for WID Activities traditional roles in Despite women's significant they are household decision making, agriculture and rural farm by new extension agents and untouched frequently by-passed by and forestry opportunities in agriculture technology. Training farmer training under the male dominated. Women of total are overwhelmingly 459 days out of 3,124 days Phase I amounted to only of qualified Rapti this is the non-availability training. One reason for female candidates. will be Project a stronger emphasis In the Rapti Development oriented training for para-professionals given to organize female A special effort (AA) and women farmers. Agriculture Assistants women for partici!?ant be made in identifying qualified will U.S. and India training in Third Country, include women on all the will also be made to forestry Attempts (user's group committee, development committees advocate for district WDO will be a district-level committee etc.). The The use of special participation on these committees. under broader committees will also be tried all-women forest development the community forestry program. activities in Rapti have and DAs working in WID along Since WDOs and in-serving training only general pre-service, to received a revised training approach team formation workshop, with and forestry is also needed.. stress agriculture, livestock d. WID Program Recommendations (at train additional .JT/.JTAs Project should hire and 1) The eight year project period. least 10% women) over the role of women in the zone's 2) In view of the critical include as high development, agencies should agriculture women as agriculture and possible number of qualified as consider incentives for women livestock assistants and in extension posts. training for village 3) In-country (para-professional) reforestation in agriculture,soil conservation, women needed. and pasture management is

37 programs of women in the reforestation 4) The integration be deliberate. be slow, but efforts should will likely Panchayat Forestry women to be part of the Requiring incentives for women. Committee may give special of fodder, wood are responsible for collection S) As women should be given when seed , special consideration and naikes and forest filling positions for nursery watchers. be local women leaders, should 6) Village women, specially as in India to tours, in-country as well taken on study activities forestry areas and other see community WDO and DAs can be to agriculture and forestry. related in this respect. the main implementing agents establish private should be encouraged to 7) Women for fodder and vegetable nurseries near their homes seedlings. forestry at least 25% of involve women in community 8) To forestry committee should the members of the panchayat in the women a voice and role be women. This will give stages of community Corustry. initial, and critical naike and forest be encouraged to apply for Women should applicants should be position, and any women watchers Privatization of preferential treatment. given women's involvement because .nurseries could allow more could be used to produce private land near the home seedlings. a the Rapti Zone is largely deforestation problem in 9) The be solved without an livestock problem and cannot to are mainly involved in day integrated program. Women also high portion of loan day work in livestock and The used for buying livestock. provided by the bank is can be used to reduce livestock loan program for a When a women's group applies deforestation. should be contingent on livestock loan, loan approval fodder be planted, the requirement that sufficient feed the purchased livestock. protected and managed to DAs should work with bank the field level WDOs ane At groups on the timely officials and women credit loans and proper utilization availability of livestock by women. WDA should be involved in agriculture, WDOs, DAs and 10) For to participant in agriculture selecting village women in Rapti have decided that training. The ADOs in should training 20% of the participants district level level training a and in sub-center and village be women Therefore, WuO should minimum of 30% should be women. women for these types of be an agent for selecting

38 that other district line and for making sure for women. training same type of programs agencies also have the WID personnel in the the needs assessment, 11) While doing needed to assist rural realized that many programs program field Rapti. The new RDP WI are not funded by the areas of women for women's program in will provide funding local capacity livestock, forestry and agriculture, health, child care, However, programs like building. have to be funded by HMG water, adult literacy drinking donors like UNICEF. RDP in aid funds or other he grant program cost and 50% will will provide 50% of the provided by HMG. in VIID Peace Corps involvement 12) Peace Corps Involvement: in Rapti. Peace has been very encouraging activities background on volunteers, with technical Corps forestry and other income agriculture, livestock, activities should and community development generating with WID in Rapti Development be provided to work Development addition, 3ince the Rapti Project. In certain programs like can not provide funds for Project etc. The Peace Corps drinking water funds construction, that some separate AID/PC Office should make sure are used for these purposes.

e. Proposed RDP Program the RDP strategy cited above, Using the objectives and areas: activities in the following WID program will support of the WID component is A riculture: The objective to I. income of rural women and the productivity and these to increase agents. In order to fulfil women as an extension productivity involve will focus on increasing objectives the WID program improved technologies, specific training on and of rural women through and extension materials, of various tools, seeds The distribution through the extension services. provision of field support of vegetables focus on increasing production WID program will also of small household fruits through the establishment lacking and plots in WID sites. douseholds horticulture demonstration and marketing will benefit necessary for production The WDO the resources and vegetable varieties. the availability of fruits for these from different line agencies should work closely with activities. will increase livestock Livestock: The WID program fodder Z. animal health, improved productivity through better of improved breeds. introduction and distribution be production, banks, village women will Through the ADB/N and commercial production purposes. for agriculture and livestock provided loans will be provided technical livestock offices women se'rvices Through the and fodder development, training in livestock management and support. 39 for RDP 25% of trainees selected 3. Foresty: Under tie and technical areas should be women training in forestry related be of forestry committees should at least 25% of the members for private will be provided to village women women. RDP support forest fodder tree development, and nursery establishment, naike and forest Women wi]l be included in nursery management. tours will be organized for watcher training programs. Study community forestry activities. village women to visit other disseminated through women as Smokeless chulos will also be primary users and beneficiaries. RDP will provide support Local Capacity Building: The 4. and assist these groups in self reliable women's groups in forming Also a special effort will engaging income producing activities. them women enterpreneurs and assist be made to identify and train with private enterprise development. of the Project is expected to The WID program over the life (10 in each districts). to an estimated 50 panchayats expand in 8 panchayats. Currently the WID program is operating in-country training are provided Recommendations for WID related in Table 2. Associates (DA) is Corps assistence as Development Peace WDO. DAs with technical each district to work with the planned in experience on women's in agriculture and forestry and training be helpful. The Peace in other developing countries would program in Table 11. Corps assistence Plan is presented

40 Table 5: Planned WID Program Outputs for RDP

I------Project Year : 1 3 1 4 5 1 ---- o a iI UNIT------1 11 n ACTIVITY i 2di 53 4 5 b .. :. . ta. 1----1------i------i ---- 1 ------0 to 8(1 1 person 1 to 1 tO 1 10 1 10 10 10 I :Kitchen Gardening Training (7 days) !550 250 300 350 400 450 500 600 700 t * 2 !Vegtable itchen Garden Est. i each 450,) 500 500 500 500 500 500 75o 750 3 :Vegetable Seed Distribution pkts. 160 20 20 20 20 20 20 20 20 * 4 :Ginaer Production Training (7days) person 5 5 5 5 5 5 40: Training ,each 5: 5 :Skill 300 300 1650 * pkts. 250 250 250 300 6 :Fruit Tree Distribution 5 5 40 1 ropani: 5: 5 5 5 5 5 7 :Fruit tree Plantation :50Jo 5 400 (I month): person 5505 50 50 50 50 : 8 :Agriculture Assistant Training 5v) 50 400 1 person 50 50 50 50 50 5o 9 :Tools Distribution 30: 30 190 :person 10 15 20 25 30 30 10 Bee keeping Orientaticn and 30 19) :person 10 15 20 25 30 30 3Q :11 !Bee Hive Distribution 100 : t0. 100 800 Sperson 100 100 100 10 100 12 :Demonstration on Compost Making 100 : person 10 10 01 10 15 15 15 15 13 :Livestock Asst. Training 11month) 255 25 1 25 30: 35 40 50 50 14 !Livestock Distribution t each 10: 12! 20 30 0435 51 205 :25 :First Aid Treatment in all WID sites S each. : 5 105 IC'S 10 1 105 I0 I0 70: Kit D istribution 1 each 1 5 116:First Aid 5 0 250 1 2 5 2505 1901 1 * pkts. 5 250 150 250 250 :17 tFodder & Foraoe Tree Distribution 12 1 1.2 96 S person : 0 1 10 10 10f 10 12 .18 :Poultry Production (I heek) 20 161) person S 20 20S 20 20 20 20 2'.S :19 :Farmers lour 50U 40uO ;person S 500 500 510 500 500 500 5'., :20 :Extension Materials Distribution ) I 80 : ropani : 10 lOS 10 1 0 0 t21 !Forest Plantation 4750 250 : 250 ! 250 400 600 800 1Ou' 1200 1 22 !Smokeless Chula Distribution 1 each 255 25S 25 25 30 3'.' 10 215 123 Orientation on Smokeless Chul (3days) person 255 1 5 . I 10 .24 :Private Nursery Establishment each :5i 25S 251 25 255 25 25 25 20 :25 :SNursery Naike Training 1 person 255 5 55 0 :26 !Forest Guard training person 1 S :'7 :Credit Group Formed :28 Household Survey :29 :Credit Provided by Bank i :3'Community Development Activities i :31 :Group Farming :2 :Private Enterprenuers :35 Processing of Agricultural Products ------

- 41 - C. Rural Works Program

i. Experience to Date component of the Phase I The objective of the rural works was to assist local communities, Rapti Rural Area Development plan and and the local panchayats to identify, user groups development projects. implement needed local infrastructure works projects were supported: The following types of rural flow Water Systems: These were gravity 1) Drinking with population drinking water systems for villages persons. generally less than 1,500

Irrigation System: These were improvements, 2) Minor for irrigation rehabilitation or new construction approximately 50 hectares systems with command areas of or more in Dang Valley. in the hills and 200 hectares construction of steel Other Rural Works: These included 3) meter span, improvemnct and or wooden bridges under 50 of socially beneficial of trails and other categories projects. provided US$ 3 million under The Phase I Project Agreement following planned outputs: the Rural Works Program for the supply projects; a. at least 40 drinking water 3,000 hectares of land; b. irrigation facilities for crossing bridges and c. several wooden or steel river 140 km of trail improvement. agency for these rural The responsible central implementing Panchayat and Local projects was the Ministry of works responsibility was with the Development. The district technical Office (DTO) under the administrative District Technical (LDO) in the five of the Local Development Offices responsibility Office provided The Rapti Project Coordinator's districts. (imported materials support and construction materials technical were responsible for the and the District Technical Offices only), works at the sites. actual construction and supervision of all cash portions of the The LDOs maintained an accounting accounts on materials provided construction funds, PCO monitored records for and the DTOs maintained construction to the districts, schedule. DTOs were the targets according to the time achieving offices and PCO office responsible for reporting to district also these projects. on the construction progress of

42 monitoring of these were responsible for field LDOs and PCO monitoring on the selected and USAID carried out periodic on the projects quarterly progress reports projects and maintained overall individual projects. projects shows that the review of these rural works the Overall water supply projects was progress of drinking uf implementation bridge projects. The progress best, followed by suspension The construction has been most disappointing. irrigation schemes water projects and steel standard of most drinking quality and good, while that of irrigation has been acceptable to very bridges poor to acceptable only. projects has ranged from under the Phase I rural works projects completed Many of the and maintained. Few of have not been properly operated planned. Project projects are functioning as the completed water supply cases and systems are inadequate in most The maintenance bridge projects have seldom lacking in few cases. The completely so far this is not a problem maintenance committee, but except had a bridges are in good condition, since most of the completed in and locally constructed bridges for three locally designed better quality of PCO and Rukum. Judging from the Salyan, Rolpa bridges it seems that there versus locally constructed assisted technical support of the PCO. significant benefit from the in the was Committees are seen functioning Although some sort of Users ard projects, the quality of construction completed irrigation often to the lack type of project are poor, due operation of this the project and common objectives among of communication supervisors and villagers. designers, engineers, construction drinking water projects, the With the exception of few than works projects has been slower implementation of all rural delayed budget reasons for this have been planned. The major Under the first six and inadequate field supervision. releases 43 drinking water supply projects, years of the Phase I Project, and 14 bridge projects for 1106 hectares, 19 small irrigation approved for project trail improvements have been projects and 7 11 small irrigation Of these 27 water supply projects, funding. bridges and 3 trails have been schemes for 533 hectares, 12 completed. receiving direct benefits 28,000 people are £8,000 Approximately water projects and another from the 27 completed drinking projects. water from the remaining 16 villagers will get potable to have received 1,015 farm households are expected Similarly, or seasonally) from the 11 completed irrigation water (year round Another 573 533 hectares of cultivated !and. projects covering to benefit 775 household of farm land will be irrigated hectares The 12 completed bridges provide the remaining 9 projects. every day from for an estimated 3,200 persons river crossing facilities crossing facilities remaining two projects will provide while the a day. for approximately . 700 persons projects is given in The district-wise status of rural works the attached Table 6. 43 w t I .. as of I r ,ff.ient io it t of ...I.ura

F:':AL HIEAt"ELORtEtT' RFM ZON. , Ding Distr ict ¢i!~ .i::i ...... ,u-... ii o Sig. Jn1ie Fi~on-Ft niFrr s . i: ' 3I~ao ',,Li:'' .- L... ,*- er . S ;, I'- I D r4 1" q 4 I : I.':F pi, i pu r T 3e. . I Dan; - . S H ,rn'lt -a. ilO t GUS Hi no F D . .ho.l.ha.. Z8(_ l16 Laps 871.- -rEf' 7'4 I' ' ---Dhn' ri - 17 21- Fi- 1 ena 50 7(1(1 66 Ha. "0"',ip1. I -I'*4 larigaon Raniqar 51 SalITar diyiian ar Dng11 HIt 4SJ SI Seudiyar SI ' ' D" HI i66 ~ H,4~" ZI podhipt'r SI Dn.Faraspur 9. .y ' _ '. . , 6 111 . o 1.,,' 1. 7 QI. La I mat..Si a H S' La I. .a Li...... - , ( - " ' . .o . So, S. 1I-r ...... z. I 7 La p . . LS o I ,Wih a .. %5-1 4 I US r '. Dang ;a..pl. '.s I.I. N. i u.e lp i Na IZ '. 15 1ips 6" N'~i D2WS Hflwai DO15 / Ha fw r R?, l - , 4 ..... '.. .. I 9 GhoulP L h;I .S Dani~ alw i. a H.. " " - I' .Ha lfIl,"' r SI G ral ' a.4 I. S,1 Tiibhu..anna I to Dj.'q 71+1/ taps ' IS GUSliar oyaripur Dh iLIJ DWS liar a-, nput iE'h i pu ... S ta s I7' ~ . . •~~'.m . .. :4 DF lana . . B......

DF, Q ) 38~~~I-ol ~ Hai v •/iis .... .l..:-UL-fIP a 1,;plementnion status of sisal- ruN! wctl- ict. AREA' DEVELOPMENJT: RAP]! "ll F 'lithan Eijstr .+,.. 'It - . RIJPAL 1Ail d4 , .M i... . Fopu- ia::, ' t: L Fr . F.ncl.avAL " " o ------. -----.------, , ------.-ol-n-t -- p, e - - --- . - .... 4 , . 1F'.f I I I p ;i I Kh ibanbaiqS . t2 1 [)US F Ff""h L11,1d A. ' 7*taps 'I t ',, DUEChap - holaU D ES F, bI r H 4, 1 anF, t t lir HH. - 40; ...... S L -un; , V . 31 Harhabinq Ry'hi)56S" Ha. '110-l ~ SI l IAi L ZS1 Tvrbanq "' ~ a ~ - Iha 2,4 Frsa S Gui tungilliola s~itieg :'L- K FL -4' Severdi. It Ffta . ' l~) ~, 1 Putaliling-Syijlibalg T Sever al 6., F)-jt Ilan I*r I 11113C uja OWSChj j i 1 1.~ :Ic~ ~ " Satri 1112.4.. Plullial' 15.,~ I; P DUESari DUE FIitt'ion 17'' ~ .J4 ; abanGU DM5liarhan labang I r F';Fu h"it jbI I' IF~~ IUSat Indredanda DWE Ai jw r W uhn14 p 'I IIDU Bhilidanda6 DJZha.ad kuhan H .7" I~ i 11 SI1~ Gothibaiiq Pond Dhvnea '10~ ir ~ 1 P* . " .Fuha ~ 5 14 W?. chuja HI'aa W? 'Chu'i NA F uLh in 5' Ba 15 SD1; avelthola 5F Tir. ~ f tothAn 1 I. 4 16 SR 4igiIir i I liole Sit AIII 1,iM I iii*'~ hillI * * Lul i rig 1,45 Fh~jp I i N. 17I GS Phup I i F5,vi~t 1,at 14 ('I II taps I.: Chorp in i DUE Raspur 1,ot c' DUE "*1 .. ,,j.O, ,rluthali 130(1 t;Ds' IP OUS f USIhalariaa

44 48,*2 001. % i0 Jit, 51 dN SFF8 480i)00 I5juOI~completed

Gabion Weir wsl- iZ-- Was haltI dolie '"~~dmL.Zitera 5.P-54v'0." 3~ ,Q'J:0 br,*c-tii M. : i6.ltap Seel~ cubt jUNESr l'4, ZII' 0 1I1. 0') wus convietE. C', larII it qti'i "I. o~*'.O''Ca~lv 1l.isil. -tall' 7 .AFF-84. 4,:) ~' ~ :fI) 7' ,,(m jo . kt, %rit ltr~d. y ~ 15 L111-1 l5.~C4" 7 . **1,4. oit' Cairp 9'emiti Shesh rdii korl ir al r'' 27B, 56.0. 7~.' Cotlpleted to 4UG-K3 1 on Dew~n Sinrnh 1ta1 Winq a:troi. ItI AFR-F4 114 ,0 .0k Vivo00)Q *CowmIet ed 4 . d.* t'11,1 WooI 111(i ... toI lt Pd ,ia i R-64F ~ Q ''' t ~ flo 'l tet'I vilI- 265 )Z:. P) n i at's 13 :1 kit'. U"l Loifltictil 'c.' . Oflal :1"47.lk Nt fnrru.r 1+ E 636.447.00 16. 1C5.( No 940',00;.'Y

cs:inl Npoli tupeps

*Coipled ' .xt:Y I1.0 noilg U biz~n Completed .460jt' ill e5 okn JUL-84 144.000.00 :l.0. . 2 tl, Not Ior ned, tIntf r S: '. 3 xxxi 367, 769. 00) 319.140.0t Ongoing Uptj'rr "'-/ OU Complepted tli 5 Jul-19' 352,.090. 06 35'. (00. Open' 10t ort'&- 250i. 0A0. ; Cospleted NA Ilor~e 6 APR-85 694, ;4(. 00 ' .21~22 U-'H~d. ~tec 6.78. 160.00 Ongoing t4 xx- 94M,78.00 1 it Inn-d CollIrt. chA trt..I dF S x : -1200 ~ 2 ,7".. 0 Onuoino Hit .Ongoinn ~'t:'d~ Cturl. iti, *'-~' '' xxii:. 43867.' 17,346.,'.' iv .3L t~h Risa .Uar IinQ VUt :Ii2i.. .*.2 f 28. 00 Curipieted 1I'Oi in to APR-@4 23S. 5cI0'(. (2 mI It F. lc-I in -t I I APR-64 6,1, 1)u.00- 78,00i .00 Completed "0 R~vo . 2:5.00 Comipleted 12 MAR-82~ 6~.t it' Est,'2 t~ 'JAN-B"17 627.00 17, 627. 0'.' Completed 0 4.JAN-03 1 900 6.BB 1 up ~doe ''1" ' Conpleted' IIA Ntor". Open~'c 17, 5i.00 * I55250(.01,0 15J~-85 tin, Open, tar rcrw'l P 17,.*0 It 7Z.90('. 0' 'Caui)Itrod N ~"2~ t~JUHps 9 Hot. IoLv ?d 'lolitt'ictf.l '. v-. IVI r 1Xk T55, 15-5.00 653,817.00 Onlgoinig 17 30 min Ho atmc-d Contracted (5.'.U.-.0oltEd) t$ :.r 649.,46.00. c27. b6. )(l Ongoino 270. 101.00 Oncioing 40 (,in nuroa F.Sthreste 'Coi:pleted 2.xY 357.45.'10

tQ ~ 44a -T^p2S'L

~ ievraei p ti (00 TJ ~ 1 Lli wna-Ghorta E;II r i fig 7 DOL' i ,'I srrta Bt Ii DWS D ------______lo D ------S - Ei baq-7-.i. 7_ jo' I 3DWS- hi IbDEi ~ Linadting 3 F-IlDi '~ ~ 4 DW5 Linqdunq DWS 4 e1IdI" 9Ips r i ~ DWS Bhorna HMS ila~ina S

S A, - I.' S irit~rni IJuwiacan S6 Hlva leon lv. R'p ~ 74~ol SililS J bariq ".6'p q..4 . 1, ,7 * i *, . l 5 lasiii*Lhol? 3B b'bidanda ap taps m j-. DM5- Mwhama F,1pa :44 !11'3zlishibanq 'i* I, 1 u an Fp6 1 ~ I1I03 Ghod 4,O Dws .hn ho Om I.!pjon~i!f2J61 En Iap I"~ 6"f- I, DWS C-Atio ion VWS Z~p* - "~ '3 1Ii"~'AV I 15 IOt~vall VUs Lotoanri Ncp H ' Ha. 14 '31 . Iu I Fal iba Iria S) Gvia)d 19Co.%'' 5'1 b a, ia ho Ia 0 arel Il b I irtitop .o IN 1!11 IN h, . k SI ~ Iaralh.SI id~11pa'i I Folpv t- C . Plp 12 Ups I7NS' Jedbanq NS5 Jedbang. .

'. a I J L a p I ' s ore ,a tioru 2)O C 110 . FURA1 06Di7: ARE IcDEVLORMNI:RAM ON

as~oI:ULL 3 Ows enttciOli Dsue0 aI rua' Iga 2-T .4.' a.a7- OW. F-1(tt5tp DWaJECT1 Lp1-q~-F l FIJRS GAADEVLPHN: AT KOHfIu-ga i staicI

111I.-0 4;6 1ps "i*'(1'.3 c D145lheAW a D115 milloItao se teii 'a '" 5.. . 3-10 .I c IM ;-acveUSalq 5et- *"' .~ ' 4 [jr. i~qo -GotanDM5totm I" als ,ii

F.I'~ 'i'A 6H'a60" . ~ H>3 I'~bl DS.aM 51~ Hilanoi 111H PiltiaFIJ k' k I' 5 ----8l*~ I I.~h~~aahil ISId Mt. Se/era'aF, 1 . -,14 * lip 1- tills wsI .,. Flat 3lp 1 - ") I DhNavl~nd DSkoaio-na1c 4.Z.4 gnkull 611 5-'L.is j I V~3 I- O:JSGone DM5 len

'44b "a1 I~SI.:]a~Claujhaii Churjaai F:Ii~ IH*~ i~Ha 4"' -rA, 6LIC

CjI 5~~ j,4~ ~ ~ ~

4 17 5zI f pi Hem.~ 1*,;11NoriLeH r)I IAR 5 N77;a.~ I4' ~IIr UI) .' , t 1 .ee JUL-5 L 9 ''~ 7~ I' J9s .r'I 12134 apro q~t ic n d 4' " f '4 tl~~~~iA' . '

a~ I~el, ed t imor n d 5 JUL I S *'"l ~ ~,Y : Jull-8 qq 1-!- "

IIc :c:;I

itc 12

-N yiiKr

fI - I!* V,-. :~ cc It' -~~~~~1 ii l li Ill-lip

it, Nel,6t

-~ t jW" ri m s o ,e Us e,, Lozup l t hudq et 'W L d l~ ~ - - -~~~----~- -'- - '-2 -v

r 7' -Y "i<.---l ~ ~ - Ihe-' f ~I'1 '2 OO '(' (;i'i ii Lr.itd 1 n .i 2 JUL -S5 , 'l! ? 114 i. 1Ir I. o I I C.. 8 III ' ' 6."i) * '(' I" Co impietd

a .: li " - s--- * * -lo i * - I41 0 Caspleted ' ' n , Di Frt .rIa , ' II5- lMJU -S ~ . 7 ~ -'" ei 0 (1.5 )( , 1 t paed r~, ~ i*if'I ~ ~ IZi~ 63 Iq,0/ Cpee .~.).. I~W- h ~ ic 64 I~ ' " ~~ dei"~~~-I- (l'1 C~e~etiatli -tb.~ii1.11 I ~ --K - -- V 14 lA~~ ' un setdK'~ Oion lm ' Zil .'' -..- U) ~ -- t- 7' r I nqig~ ~,0lb.48Q l I I ~~ oPQO"~ .Q ~ -'c~ 7cii it. Ot-'--l ('0 t '- ii war~I,,K~ I~9 t rt -0

'iicille-e-

lip- -'iiI~e -- '-itd t ~' 414P Qlf" I A-~edt&K-

- - ted 'K-~': t ~Hat 17--

A '- ' 44c it,~

of ai;-~ii ur 6 wolS. 'i

1 ,4 I' t s l t

:'' ;AAFEA DEVi-i ENT Ft'i+ ak " a

I. 9 ;+~ ,i vani ' iv+~ ::+I,,' +: ,+++. ++: + * '.1,'++ . +++ ,:;4++ II S.. . I,+,Thul t r a,1+:aqada LU So hS E, I'ihlrliidt'ta"+" a -A tha i~ (U FhlbAM1ij .111,p [1 no~Ii'r 45-2PI F.i:+: -. H B l' i IFpI iA i~ . :'ii ++++*+ ++++ 1411 IS'.i+ +I~i++++Lii !i +i

' tipsti~ I~~~~~~~~~K.Ini ,I itc'

I, +i+,+E Si . .. . 6 51 a.~HH+L:. .. , iI+7', hoI0 i S++'+ Fipalnets+++++, +?+++:+ ++ tI+++ ' +-+ ++,++++++++.l rII+++++++ +++++ ..... ++:+,+++ .+ ]++++++++:++.F+ I. * , $ ...... !I + 4 4 d .* , * .,]+ + , t:., I I.S...... ++ + >+ [: ++++ + i +S ++ +w '1S+ :+ + )++ m+ + + ++: + ;!+ ++ :1 : :+ +++++ :* ;: + 4fii2i1ift I I ~ '' a'" ' il~i,Iii i SF?iii !!I'l"'a 3i9?ii~sh!~i SF]ii fl51 hii!.aIi~i ddiii~hti i?!: ~iiiii i IS i * ?~~iIIiiY?!!iiI

II a!*(' 15 ~S ban.lIII~I't'WS . '~vb~na' :2,r;l2! " '~a a. 7 i a. :i tp ''io1~iau' V ~S l ~

"a tI I+t~ :ii l a l

...... 'a a 'a'a)'~a

; +++al ++ 'a ' a aa''a 4*- 'k- 4 > 4 4 4 4- - ' -- - - -~' -. ' 4-- Y - - -4 -.------. - -4 -t4- -- -4 -

- 444-.--, ~1,- 111 f- i - - - - - C------

I ot I) I

u J4 U L -3 .. .' titeri 1 ' I id lep ~ ~4e (~i'~"'~ 1~ *'J U) Cnoop U w ef c c- 0 - -~m - J ..' '4( ' *0 Io"O LE 1 0 1 '1 S A t !~ . P 5 h~qona'' B.~t-e~ V,-:r[ r 0 t4av'I d '. . ;.d. n a L B d "I u.- 1. :11 w4 el -- ~-Nolte4~ L' Ii B ,.uaI J~r ~rg. ~I'. ~ iplted ' ~ir 14 4~ '"' ili C ~ '444 $$ IIJL'4 '2',.--'-I4- 4 4 4 4 4 ~ ~ ~ ~ B GI tin-'4 410 ~ ~ ~ ~ ~ ~

lob.- 413. 0

li 1 57-~.4

.- 4- ~.-.44e~,-- Bu tdIoil. n i~ nuL Cape e. 12I 13I4FS.9t " I' II.'0.0 2. Implementation Constrailnts Implementation Guidlius a. Districts not following standards and implementation Phase I Project established The the and sent these to LDOs and DTOs. However, oft,: guidelines of rural works projects hzIV, guidelines for implementation of local village politiCS The political pressure and been ignored. influencing project selection has been a major factor implementation. Active Involvement b. Lack of User Group noted and maintenance has been The poor record of operation works projects. The HMG maintenance several of the rural rural works proje(cts. for for all types of the budget is very limited systems to gencrate beneficiaries used fee are Neither have local The notable exceptions for most of the projects. Due to maintenance and irrigation projects. drinking water supply functioning at for some the projects are not of maintenance many of ceased to lack of them have even completely full capacity and some function. Implementation c. Delayed Project most of the rural that implementation of It has been observed in many cases the been delayed. Also, ThV: works projects has have not been iiaintaiii(cd. quality and standards construction for this are: several apparent reasons 1) delayed budget release; manpower in the districts; 2) lack of effective supervision; 3) inadequate construction monitoring and feedback; 4) insufficient project of imported transportation and procurement 5) delayed to the site; construction materials processes within and among 6) uncoordinated administrative PCOs and LDOs. in between line agencies 7) lack of timely communication district and central levels.

Manpwer: d. Shortage of Trained Technical the zone have a shortage whole the districts in On the As a result, some of the trained technical personnel. even thoush tihe of are not used properly for technical equipment provided equipment require~l have the minimal engineering districts now of the rural works projects. the survey and design 45 with USAID or other suppor Although the PCO in cooperation for the technical training programs agencies has conducted some of the involved in the implementation overseers and supervisors have been not limited training programs rural works projects these courses, the shurt to the limited number of adequate. This is due of expert 3 to 15 days), and the lack training period (usually trainers . Works Program 3. Strategy for RDP Rural Responsi i a. Simplified Design and Implementation procedures for the The following plans and supported rural works of Rapti Development project for management simplify responsibilities activities attempt to and construction which will permit identification the project implementation, series of works projects without requiring implementation of rural The project offices and the PCO office. approvals from central of the is to assist with the implementation strategy so that district lIMG offices, Decentralisation Act and By-Laws local contractors groups and also private local communities, local better. To this their duties and responsibilities can perform communication channels, the RDP will help to improve fund end, the local level, efficient decision authority at district financial training and village and disbursement methods, personnel level planning. 11MG requests for having the past has followed the USAID in through participatory labor done by HMG line agencies all construction Now, as described below, contribution by the beneficiaries. Project will be under the Rapti Development rural works projects of district line by joint responsibilities fully undertaken or user's group in line and local panchayat community agencies, Decentralisation By-Laws. with the recently enforced Works Projects b. Fewer lypes of Rural works projects .ril- be The following types of rural Development Project. undertaken under the Rapti 1) Irrigation projects ranging in sizes from These will be small irrigation in areas and more than 100 hectares 10-50 hectares in command will be strictly for Dang Valley. The projects managed improvement of existing community rehabilitation and active involvement This will ensure Users' Group projects. of irrigation project. No in the planning and construction Project. will be funded by the Rapti new irrigation projects projects will be part of these small irrigation An integral which will enable the agriculture extension component, the the improved and rehabilitated farmers to optimize use of For most purposes, these projects irrigation facilities. Groups from responsibility of Users' will be the and maintenance. The identification through operation

46 Inventories the Panchayat Resource irrigation inventory of and the high potential production (PRI) is identifying be focused. It is where this activity will irrigated areas and technical will be that assistance in cash recommended Organization (PVO) in by a Private Voluntary provided Technical Office and the with the District build upon cooperation of Nepal. This will Development Bank graint Agricultural the Phase I Rapti ProjcCt established under sites. the model improvements of SFDP to CARE/Nepal for irrigation the Bridge and Trails Connecting 2) Suspension Bridges rehabilitation and These will be new construction, span steel bridges having a improvement of wooden or situated on 50 meters in length and generally not exceeding withi Lie Sallme trails conuecting villages main or secondary Construction of th or different panchayats. zone panchayat on main trails in the network of bridges situated larger of suspension bridge project will be the responsibility division of MPLD/HMG. the Rapti Project to be supported under The types of bridges under the be planned, built and maintained knowledge will Technical Office. The responsibility of District people in the bridge construction and technology of local materials providing technical support, will be reinforced by for this is recommended that support & financial support. It the the some PVO who supports activity be provided by irrigation program. for Construction Implcmentation c. Clearer Procedures procedures will be The following implementation rural works projects: used for all types of the selection must follow Selection: Project initially based 1) projectProject selection criteria and will be rural works Panchayat approval of the on the District This will be for support by the project. activities with periodic plans confirmed by LDO and checked works activities. submitted for such rural cost estimates, Prior approval of designs, 2) Approval: and maintenance schedules and operation construction rural projects. will be required for all plans study to include Preparation of feasibility and designs, cost estimate, socio-econoic analysis, by District plans will be carried out construction from the involved PVO. Office with support of Technical projects (irrespective example, all irrigation For designed and cost e-timated sizes) will be surveyed, the together with local by PVO at DTO staff working by should be formally approved groups/users. The design design by LDO. A copy of the approved the DTO and cost to PCO and iSAID/N. The package will be submitted 47 work requiring be broken down by types of estimate will be supported by support & works which will project cash/or kind. beneficiaries in terms of labor, of imported construction Procurement: Procurement 3) responsibility of LDO and DTO materials will be the all for the purchase of cement, offices. Except the approved design will be purchased based on materials This will be specifically of the individual project. bridge parts for procurement of prefabricated applicable in Tulsipur, Nepalganj or from the engineering workshops Butwal. and Supervision: Construction 4) Construction Modes and uTO be the responsibility of LDO supervision will posted at a least one supervisor will be offices. At operation of the project site for day to day rural works are already construction work. The supervisors technical offices. Currently, available at district under the site supervisors in each DTO there are 5-6 will be employed Project. These supervisors Rapti IRD fhe project will provide Rapti Development Pioject. for the site supervision & 6 months training course for of project implementation. overseer in first two years for the construction will be Initial responsibility undertaken by LDO/DTO jointly for project carried out roll. For any rural through labor contract or muster undertaken through local contractors, works projects of the construction would have to submit copies LDOs for the review of the contracts to PCO and USAID reimbursement claim and auditing. will be the joint On the site construction management users group and the site responsibility of local told and Beneficiaries should be clearly supervisor. be paid by the project and briefed as to what works will will have to perform what the beneficiaries in this An agreement should be made voluntarily. group prior to any between LDO office and users respect for the particular investment of the project funds projects should have at least project. All irrigation in from the project beneficiaries 20% of the cost come bridges, or cash. In case of suspension form of labor over many villages the expected benefits are spread as bridges will be fully or panchayats, the cost of the funded by the project. d. Monitoring and Completion activities to assure that Field visits to construction timely out in a technically sound and they are being carried and DTO office staff. be carried out jointly by LDO manner will out monitoring visits when issues PSO and USAID staff will carry

48 from impleci.i.g would either be identified arise. Issues progress reports will b or progress reports. Trimester agencies Copies of the trimeSterly by District Technical Office. will prepared to PCO and USAID/N. USA|D report should be sent being spent progress that project funds are out monitoring to see carry PILs and approved design. according to agreed upon of the rural works VeriEication of the completion be Formal certification will will be checked by PCO. the projects out by contractors, and for construction carried of required identified at the time for this will be bridges. responsibility may be done for suspensioii contracting. Contracting and Maintenance Arrangements e. Better Oeration arrangements of the rural Operation and maintenance be possible users group. This should should come fro local works rural works projects, e.g., the resulting facilities of Examples since benefits to laud owners. irrigation projects directly fee systems, elsewhere in Nepal where user exist in Rapti Zone and groups, have strongly led local beneficiaries operated by these types of project. operated and maintained for successfully will not be given priority maintenance budget groups will Therefore, for strengthening local project support, but support project components.. be provided through other

4. The Rural Works Program

a. Construction MiLlion approximately US$ 1.40 AID will contribute of approximately will invest in-kind costs and local beneficiaries of existing farmer managed Million for the improvement and US$ 0.215 and for the new construction projects in the zone based on the irrigation bridges. These costs are improvements of suspension and 6 completed completed irrigation projects analysis made on 6 the Phase I Rapti bridges in the zone under trail suspension it is expected that With these planned investments Project. will be fully irrigated 2,600 hectares land of approximately approximately 1,536 meters the year. Similarly, will throughout 180 meters of wooden bridges bridges and approximately The steel by the end of the project. constructed or improved Tabie 7. the program is presented in proposed RDP construction in low land is cropping pattern after irrigation The assumed or maize followed by followed by wheat cultivation would main paddy the assumed cropping pattern cultivation. Similarly, by millet paddy or irrigated maize followed paddy followed by wheat be cultivation in upland areas. and mustard (vegetables) 49 at least irrigation projects will have As said before, all the projct construction cost rome from 20% of the project kind. In case of bridges, in form of labor, cash or beneficiaries over many villages or expected benefits are spread as the will be fully funded by" the panchayats, the cost of projects project. b. Equipment district offices for AID will provide support to materials and some office equipment, technical purchase of i,nplementation of rural works motorcycles required for successful activities. c. Personnel agency staff (District 'teciinical AID will support line activities. The Development Offices) for program Offices and Local 50% of program costs the USAID contribution will be approximately life of the project.. d. Training Lraining 2 presents the planned in-country Table offices. Similarly, personnel working in LDO & DTO proposed for approximately 80 persons proposed that AID also provide of it is (third country & US) in support months of participant training the rural works program. e. Technical Assistance implementation of the rural works To support months of that approximately 10 person program it is estimated person months of long and expatriate assistance and 120 short-term assistance will be requiretd. short-term local Nepalese technical like by a Private Voluntary Organization, This will be provided provided by Peace Corps Additional assistance will be CARE/Nepal. 11. Volunteers, as shown in Table

50 4 4,* 4 CA~4.

r: CAi m I

4.n4

-44

-4 - Ub1 UI0 0-n Ln -9b 4 ~~ ~ - ~

0 CD'- l- L" -~~r - I0

to~ N 4~9 ~9~d-d 09m0

m ~.~ m11E =. N ~W C W+ m.~ VI. Private Sector Development

a. Program Description is to stimulate the objective of this program The enterprises tc provide inputs, development of micro and small for marketing and related services storage and processing, in the Rapti Zone. The and forestry development be: agricultural by the end of project will specific outputs for the Zone Unit (PEU) in Tulsipur Established a Private Enterprise o the Phase I Appropriate (using the base provided by 50 Unit) that has prepared approximately Technology small scale private feasibility studies for local enterprises. enterprises based on approximately 25 new small o Created by PEU. feasibility studies prepared new household an' micro Created approximately 1,000 o nurseries, cereal and vegetable enterprises involving scale production production, and other small seeds, feed under the technical and processing through assistance components. Unit an Appropriate Technology In the Phase I Rapti Project, Bank in the Agricultural Development (ATU) was established under model for has proven to be a very successful Tulsipur. The ATU in the Zone. It has also disseminating new technology testing and for encouraging private sector potential as a model and demonstrated prepared feasibility reports development. The ATU has improved water for the installation of 57 assisted with financing and oilseeds, of 127 grinding and milling cereals turbines for shallow tubewells, 13 biogas plants, of 34 diesel-powered metal seed 605 improved stoves, and 411 handpowered rowerpumps, several workshops that bins, and has helped establish storage stoves, biogas plants, tubewells, produce, install and maintain of bins, etc. With a slight modification metal storage an even more important and of staffing ATU can be orientation sector development in Rapti. catlyst for stimulating private make the necessary adjustments The RDP will assit the ADB to a more effective private enterprise for the ATU to become of the local private unit. A preliminary assessment the development preliminary definition of development potential and a by a sector PEU operations has been undertaken nature and scope of future 1986. This assessment Voluntary Agency in November U.S. Private which will serve as the basis made important recommendations RDP has to establish the PEU and the for modifications to be made funding in support of PEU activities. investment in Rapti (and indeed A chief constraint to private same ventures is that India has the Zor Nepal) for many agro-based and, because of a raw materials or access to them, agricultural in many instances process these superior industrial base, can

52 more and transport them to Rapti agricultural products Rapti. Thus, the first they can be produced in he economically than investment in Rapti will to encourage private it step in a program advantages Rapti has the relative comparative possible to determine and market access for terms of production costs of investments enterprises. The kinds small-scale agro-based and marketing of include: the production likely to be identified LL'CC secdLtings; and of fodder and fruit and vegetable seeds and equipment, cereal fertilizers, farm tools marketing of chemical livestock; and the the breeding of improved and veterinary products; such as ginger, agricultural products processing of various and vegetables, dried and canned fruits chuiri, mustard, honey, for pulp and paper, plywood, leather products, and timber furniture making; etc. for discussion be to establish a forum The second step will cnLrepreneurs. ventures with interested to of potential investment working group is proposed sector development of For this a privite under the chairmanship in Rapti. This group, of be established will include representatives ADB Manager in Tulsipur, the Zonal several local government banks and the PCO, will the commercial local entrepreneurs who and several. prominent of the PEU leaders, in Rapti. The Manager local business groups group represent working group. The working be the Secretary for this to private will new ideas, the constraints will meet monthly to discuss new ventures. the status of specific sector development, and Unit the Private Enterprise b. Recommendations for for Productvity The design team from Partnership recommended that: sector year small-scale private AID support a modest 6 ATU o Rapti II that involves the development program under a an players, and that AID consider and the ADBN as key Under the under a separate project. expanded program Enterprise Unit) Rapti called the PEU (Private ATU, now 28 Small Farmer II would work with approximately Development Programs; from an essentially technology The ATU shift its focus o strategy; driven to a market driven of its the most important aspects o The ATU maintain technology appraisal functions; a modeling environment use the ATU/Tulsipur as o The ADBN in additional ATU/PEU to test strategies for use programs. enteiprise program provide micro and small o AID ADBN for an expanded development support to the sector development plan. ATU/Small-scale private 53 (PEU) should employ a Rapti Private Enterprise Unit The to implement a modest small-scale variety of tools and approaches use the program. The challenge is to private sector development and to add only what is and strengths already present, be experience step. The key "eatures would necessary to move on to the next as follows: 1. Small Enterprise Mapping: of mapping is a systematic survey Small enterprise small area. In or some other defined, relatively village clusters Programs are ideal Zone, the Small Farmer Development the Rapti of mapping is to identify units of definition. The purpose businesses that would not be obvious possible new or expanded - to bring fragmented information otherwise. It is a tool decisions or research - together to make anecdotal, survey, to provide. It forces what kind of enterprise support regarding with local, near, and distant program to link production ideas the becomrs the key decision factor. markets so that sales potential is the of crops and manufactured goods Localized over-production It also forges generating projects worldwide. bane of income another key deficiency between different sizes of business, links one scale of enterprise in programs which work with only work. of many trade and manufacturing really direct contradiction to how is to bring into focus The objective of enterprise mapping that do not emerge with a less opportunities and constraints that isn't is the art of seeing something systematic approach. It in the PFP report basic technique are presented there yet. The in the Rapti Zone". "Small-Scale Private Sector Development Adaptation: 1. Technology Testing and of technology The PEU will continue its function solving. Little basic R4D will testing, adaptation, and problem was this is done where the technology be conducted in the field; ATU. Because be arranged by the ADBN's central developed or will very focused and mapping, technology testing is of the enterprise Based on the types of solving problems in the field. emphasizes the PEU may need some additional enteiprises selected for support, equipment. has to have the means to The PEU's technology component options. It will be assuming a generate technology and product answer function. It has to be able to limited product development can be made with 'what are the twelve products that the question, fashion ?' limies in a small-scale, decentralized The first is that the Two ways to do this are proposed. who has the connections to get employ a technical advisor to a program the mapping exercise can get off this information so that roster of The second is to develop a simple good start. local, near, and more distant short-term consultants available in areas.

54 VI. Simple Financial Analysis 3. Technical Consulting: Analsi Sipl- Ficlwill it cost The PEU will need technical help to translate ideas it - What any quarter, including farmers, Can it pay for itself practice. The help can come from - programs, professionals hat to do housewives, business people, technical - funds available to hiredevelop these a etc. The PEU program should have The PEU will term, as-needed basis. people on a short term help. VII. Enterprise Management roster of consultants that identifiesemploy short their skill, availability, will use it to and fees, and = books and business this type of data base is - separating personal The main problem with developing information seeps in. - projecting that it gets too large and irrelevent the roster useful. Its not easy, Discipline is required to keep - growth strategies but its possible. in response to the The training program should be designed exercise which indicates the skill pool in the Ema wll oerer Training: mcrannd smenterprise mapping 4. SmallSThe Enterprise special emphasis. The area, the needs, and the points requiring enterprise support training materials which could The PEU will offer micro and small ADBN has developed some excellent agents, staff from other Each of ADBN Group Organizers receives training to its own staff, extension be used for this purpoie. will emphasize the in this area. programs and other ATUs. The training some training analysis, working with clients, funadmentals of small business and bookkeeping, quality control, technology choice, management, Potin fashioned marketing.S. program won't work without some old hre asi oThe advertising. Promotion is needed 1) to interest people in The basic outline shouyld be as follows: 2) for some of the speciality setting up businesses, the services which expanding whichor may be produced, and 3) for products can also be used in the PEU can provide. Promotional materials working with entrepreneurs idea the enterprise is primarilytleesosb appraising r e a. Promotion for participation in ways familiar o the t business Product advertising will be done - defining the .~~ the steps in the process new means for identifying and their supervisors. A of field extension agents video. Playing and promotion of this type is the use of effective where it can minaturized to the point be carried equipmentto remote hasareas been easily, and can be power d by battery III. Marketing the Product screening or solar charger. it be sold = to whom and where will quality, The great value of video is its attention-getting without going anywhere. For competition and its ability to let people travel - and PEU, a series of videos will be made on the enterprise Prodthestrategy (promotion, distribution, - marketingAnalyzinghe in a given area. The opportunities which have been identified and Technologies as will the benefits and the risks. IV. Analyzing the Production Process process will be demonstrated, will using the technology people already involved. Wherever possible,it and explain both the benefits and risks clients will see people just like the from Hwa HowtodoitPotentialto do idemonstrate how they got started. The videos can also carry messages Input Analysis: can the enterprise get what it V. Simple to versions can be used More detailed Overall, potential orclinets. small-scaie nanufacturing skills. peopleteach processing interest so that it can catch people's the medium has demonstratednext step and get more information. Several they take the and a Hw to do ithat have used it in family planning programs, organizations promotion. it for rural enterprise group in Turkey has used 56 6. Lending Assistance: loans for work with ADBN staff to secure The PEU will staff member enterprise activity. When a PEU micro and small Bank will extend the that an enterprise is viable, the determines analysis. The precedent There will be no need to. redo the loan. installations where ATU staff for this is with water-turbine a loan. In this feasibility and then the Bank extends determine there is not a duplication the Bank's reach is extended, and way, directly to the Bank. of effort. Loan repayment will be

57 OFFICE - THE PROJECT COORDATORS VII. MULTI-DISTRICT SUPPORT

A. Functional Roles of the PC specific strategies for Section IV. has enumerated of the effectiveness and sustainability improving the efficiency, RDP. Many of these programs planned under productive sector by the line agencies as can be carried out directly strategies There are four areas, however, of their regular programs. is indicated. part multi-district support where fulltime cross-cutting now current Rapti Phase I PCO is recognized that the It in some manner. The main covers most of these functions Phase II Rapti s trict support under the difference for multi-di responsibility is Project will be that implementation Development and coordination with the district offices is in explicitly Development Office. This is with the Local As a responsibility policy and procedure. line with HMG Decentralization office in Tulsipur will be a support result, the project office recommended office. However, it is rather than a coordination that the name not be changed. technical support, training four support areas are: The and monitoring. support, financial management, 1) Technical Support project assistance needed to support Technical practically nor in the five districts cannot implementation separately to each be dissagragated and provided economically and efficiency thus calls Implementation effectiveness would district. technical support personnel zonal support office where amounts for a identifies the type and The Technical Analysis that be based. and Nepalese, assistance and long term, expatriate of short components. This assistance for each of the project (i.e. an are needed respond to specific needs be on an ad hoc basis to basis will potential), on a periodic of district revenue in assessment to the District panchayat for annual assistance annually to (i.e. rural works programs, or determining the feasibility on a continuing basis tertilizer supplies), and AIC to monitoring Again, for many of these in the Technical Anialysis. as enumerated that they be inet on a cost considerations suggest this needs single district basis, although multi-district rather than a standard assumption. rationale should not be

2) Training Support strong needs for Technical Analysis identifies The accelerated scale. local programs on a vastly training support of are needed at all and organizational skills Basic management administrative skills are specific problem-solving and must levels, and Specific needs assessments for specific positions. trainings indicated of positions or roles, and undertaken for all types be needs to the extent possible. developed to meet those

58 it is not realistic existing workload of the LDO, Given the to cope with the need. his office would be able be to assume that are also efficiencies to skills training, there Officers. For certain courses, i.e. for District obtained from inter-district Panchayat Center in Nepalgung, the The Agriculture Training the Women's Training Training Center in Nepalgunj, Development Farmer Development Program in Surkhet, and the Small for Center and Bhairawa are good locations Centers in Nepalgung to district Training and can provide backstopping some of this training, Linkages can and should be multi-district training efforts. are not and other--institutions, but they established with these--and coordination and equipped to handle to necessary staffed nor 2 provides a list of training that must occur. Table be scheduling by the project analyses to that has been so far identified conducted at the zonal level. organized by the PCO and 3) Financial Management support assumes a The third area for multi-district and is thus for financial continuing USAID presence funds is the stated earlier, the flow of accountability. As implementation. The constraint to effective program fundamental Analysis has analyzed existing Finan;:ial Management Technical and training to changes, additional support systems and proposed area. The Financial performance in this important the the improve will be restructured according Management Unit in the PCO recommendations of this analysis. 4) Monitoring emerging needs of the districts Again combining the fourth and central HMG ministries, with those of USAID and particularly need is for improved planning identified The Monitoring and Impact Assessment monitoring and evaluation. the plan for the by Douglas Smith provides Plan for RDP prepared RDP. The main change and evaluation system for revised monitoring project monitoring, be that monitoring with be for the PCO will with the district focus of HMG monitoring. In keeping the not normal and reporting will be done by RDP all standard HMG monitoring will be The PCO with the technical assisLace district offices. as presented in the RDP only in project monitoring involved Plan. Monitoring and Impact Assessment

59 Table 8

-.-- r

Coordinator

Financial Training and Evaluation and Unit ManagementUnit Ur UntUnit Documentation Monitoring

TOperationsulsipur PCO Sgriculture ii Monitoring Ka Unit Data Rnalysis i mbursemetp Livestock Documentation

I ForestryI i

Women I Development of PCO B. Structure and Staffing structure of the Rapti DcvelopenIt The proposed revised The four is presented in Table 8. Project Coordinator's Office to the four office director correspond main units under the above. The fifth of responsibility identified functional areas proposed staffing for the Administration. The total unit is for staffing pattern (broken 50 persons. The proposed core PCO is about is shown in Table 9. The and contract personnel) out by HMG long and short term technical will be supplemented by the HMG staffing technical assistance to shown, The recommended is assistance as of the project aiialyscs, taken from the recommendations wilt PCO, as office facility in Tulsipur in Table 10. The existing RDP. In shown staffing of the PCO under adequate for the planned several of the be staffing will mean that addition, the reduced HMG in the PCO can be provided housing long term contract staff paid by the rental costs in Tulsipur compound, thereby reducing costs for the on the contract support project and economizing project.

61 0,~

------<-- - -A1A - - - -- Pro - -- Year 7-,- yea -- 48------~4 71 - 7 7I7 e r - Yea - -- !-Yea 77------7-ye F J j - -~ ------~ Year ~ - -- -~- -A------A ------A ~ ------~ ------;2 A A~ -- <~i~- 4-4-- A A~-A §~~± ~------K A - -A A-A - r 1 - - - -"4-, -AP--A A - A -- a o e D -l- n ff c A If -AY-A-~-~- -- - -I ---~--~------r - ,- - * 4. - A ~ 4 4 ~ A- ----j- - $- -A - --- - j;A-A4A --- ~~~~~~~~--

------1 -- -4 -- ~- - - c ietc fie p~A - - ;- - 1------i- - - - foriaoFoffnPdpoe --- PlanrProec sceOf-c -4------~- -- i - - -~2- - _ -__-___ ------1 ~ ______-__ _-__ _-___-___-___-___-__ _-__ _-__ _ u~ *Yar. i e r - ~ er e2 ----or A-Asseistants

------~- -i A;- b. Aq..Ext,.Nepaltr- :A -rW..onosistiAA

I

------A --At. - - - - - :------~A--- A--- c .s oL Ad io

------A . 'g oF r ' y4~Ady ------8I------f. Agricul tr A eNfi a i------.------Q omnt oe Np li -----

------(------I -- -

------4-~ -- a ., r in n O---- -8 A b 3~ Assstnt------

- -I . (26 Advrisorg epai!"------1 -1- -- - a. sock 4-44

------77------.- d- i e t c - Advisor------4 -e- a ~------A-.g r -xF--o-- -' e- s- -- r- ---~A -d -v -- a . ------~ -- - - - 1 . gr StaffFor str N-al - - - al . Eo 'i al r g o e - -- - I - - ---4 ------:AgCo~N rnnitpl.- -Fret------'II4-I Iaa-- -- I - - " b . A a y t-- - i 4 ------~ . ------6-- --6A 7 ctaSenior~ Asitn ' ------I - i L

-5 ' 7>- C21tl Contract Aaf7f- - - - A - ,;------.E ------ra.n- - toingDcm- ation- - Untit

------a.Nepal P M Datai- 1 ------Analyst' I------~~~~~~~--

-- A------s s -,sa--- t -- -- 4 62 5 !'e. Ya 7 Ya Pro fa I~-;k2YearY[? iV Yea 2 Year- 3 ,Ya ,1Ya

' T ---9 ------. HMGf~n Pr1o. PlSPtafforintrs Ofc 'i'''-

------Oficr ------

'~ - 1 . . I ------"-- -- -' '-4- on A------7 , Total HMS b pe at 5 5 1 '" 5' . 5 - - - ~------. ~ ~ ~ ~ -1---' --

I' '' Contr6 Staf f f'

/ ' . .'.; i i'li=[<--, -1,'II- -"=- -l(!!-" - - -+- - -- ...... - - -.. %!l.... ~ .>,,, ~~ . ~ ~ ~ ~ ~ ~ ~

Seci n ------7-i :777-7--i

, > . "-, 0 ! - - ..- j - - - - * "0~ " ' A - - - - 'k"l'Viji'Z.. 0 '1 '"'' " ...... ml e... 01 01 001I"' - '4 - ' " l ,-.4 Total Contract '------' ------. A, tonturact t ft c > I i'"A - Admi~nstrationl Unit

I''- . .- N i:'-'I-' HMG Staf f '~-- -- -' -'-, ------'-. ------~,l -''------' ---- . .-- .4a Ad~1 i strati Ofl f i c r e A "1 'g' 1i '~''' -----1i i-'Ab 2 4Senior' Asiista tsll ban cl r netarialU i t 5) . ------I - 1 - '- Q2) - - * '"'c> General'-Servicesy ------' ------d Garage/rvr (a '------'------'-e Communications (2) ' ...... 1 ------

I' £ii 4-,' A-'.'!. --- I 1"''" - '------a -7-' '.Personl" -:------stint1------. '-",',,--- .7 ...... -'';"'-;'- -530'4,3 3 O- K2 t " 30AFF 'I' 30 530. : 'V!t-'-4-'' ' 4- Total H .. a1 9i 9,i! 9 1 9 TOTA CONRC STAFF,'ai .

V--I- -- 'VT

A..... 4 44-' - - . . .. .

, i I A 57t;~'l U I-A ; :5 '- >59 ''-~ 59 Xi' 5 " 4--50 4 4 - 58 59- 1 ------A TO A L HflG STAFFi ------~--' '------,.'>. ------A - --lT '- j. A ------h --T, T F -''~

4 ' -'j 'A'V'A:62 af 4- A ~A4 1 1114 ~-

- A ,',4-, >1 44'-'~~~~~~* ~ ~ " J -' ------lillustrative Technical Assistance Pla'n %b: >' <

~~>~ ~>'' Yearl IYear 2 IYear 3 N~ar 4,IYar 5 liur 6 IYar 7 VIar81,r,"~-- - - - I --- 1I 1 .0 1 > - ,Chef of Party (F riing Systuass I--- i---I-I----I--I

. ------i------!Sr. LivestockIFodder Advisor

'- ---- I--.-~--: :Aqro Forestry Advisor

.... - -...... ------.-...... -.....-.... ------17hi.1) 2.0 2.0 : 2.0 1' 4.0 : 4.0 1 3.5 1 Assistance, : 3.56 n ~otal Expatriate Technical 4

- -- 1--- I90 i - ---- ~------1--,------: Agricultural Extension' Advisor

1 a- 04 ..... i ------Livesto Extenionl Adio

' 1~ . , ------~ 2 ---- 1------COmunit' Forestry Advisor

80 '~" ------V ' ------Supply ..... I -- 16-- :MHonitoring Advisor -- Fertilizer

*2--F '->.j restr Adv so

4------4 1--- . >.--I:-.-,5 .' 7'0 1-, . . . i tn e 1 7 0 t :1 tro-FNepali Techical As

------a-----ys ------

i 7, Ialllustrative Peace Corps Assist nci Plan ------

!PCY5;.: YerI1Yar 2 N~ar 3 !Year 4 IYear5 :Year 6'.:Year 7 iert9'Ciers

A Agriculture and Livestock I' ------9...0. 4 Systems Site --- --,---- I ------I ------1 1.Ding -Production 6.U' 'i ------:------2.Ding -Technical Resource Center 3 ------6.0 3. Pyuthan - Production Systems Site ------I------981 4 4.Salyan- Production Systems Site 1 --- I------'---- i------1 7 . 6.0 *3. 4.Rolpa -Horticulture I------Rukum Horticultr/Uit Firm I- ---~--e------16. S. 61 6. &6 6 6 1 U40.0 12") Subtotal Agricultureand Livestock 221 4 2. Forestry ------~ 9.0. 4 ------I------I-- II. Ding - Community Forestry 4.0 1 i '----I- ---- i-- 2.Ding -Agro-Foreitry' 9.0! 4 --- I------I------.... 1 3.Pyuthin -Community Forestry ------9----80.14 i------I------74.,Salyn- Community Forestry 4 ------:su.. 5.Rolpa - Community Forestry ------1...... --- 9.0 1 4 ------'------6.Rukua - Community Forestry------i ---- 4 5 6.i. 6,i b 5 i e .0 1-- Subtotal forForestry Development Office C.Local 2.0.4. 12 Rural Engineering ------11. Ding - DTO i------*2. Ding -Planning t Data Analysis i---- 40 .2 inDevelopment ------. *3. Ding -Women i ------i--- - 4.0 4.Pyuthan -DTO Rural Engineering ----- I ------1------2(3 1 * 5. Pyuthan - Planning & Data Analysis I 11. . .~ I7. Salyan -,DTO Rural Engineering i -----i------i i ---- I------6. 1 9, Salyan - Planning & Data Analysis 1 4------19. Salyan- Women inDevelopment I------4. 1' :----7:------,,6 1 - OTO Rural Engineering ' ----- 110. Roipa ------1------90.1 4 Women inDevelopmenlt I------I 1ll.Rolpa- ' I i ------Planning & Data Analysis 6 112 . Rolpa ---- 1601 3 -----1 ---- ' ------I - OTO Rural Engineering i- --- 13. Rukus 6 8. 4 ---- 1------14. Rukum - Women in Development 6---1 9' a, 9' 9, 6 4.0 1,3' -Subtotal for Local Development Off --I e69.

bank II.'. :0.- Agricultural Development ------8.0' 4 Enterprise Develop. ------1 ------I1.Dang - Private 1. ------40~ , 1 ~-- ~ - Private Enterprise Devel.u: i ~ ~ 61. Pyuthan 2 i2 2' 1121.)." for Ag.:'Developlent Bank -- V I I, 1[ * Subtotal ------....-... I------V. 1.01 21.0 1 21.0.1.22.0 22. J 10* u1I6U.0 - 1~16.1, - '----- Ilota ------

4 44 ~4 VIII. PROJECT ADMINISTRATION

A. Project Management not called all Rapti Phase I was carefully Although AID, it fully fit the development" project by "integrated rural all 11MG policies and and was thus subject to HMG definition The P'hase 11 kal)ti regarding IRDs in Nepal. by 11MG so structures characterized this way Project will also be 11MG Development applicable. Indeed, the HMG IRD policies are still has recently that Rural Development Board Integrated that a Inter-Ministrerial development projects, so second phase rural line with the redefined like IUP is clearly in production-focused program HMG IRD focus. the possible options for after carefully examining only Thus, has concluded that the management, this analysis and to project be the lead agency nationally option is to have MPLD in viable through a streamlined o(Eicc support district implementation of MPLD. The other administrative direction Tulsipur under the needs and arc not in not fit project implementation models did This project management HMG structure and policy. line with infrastructure and implementation structure builds on the support permit continuity in operations in the Zone, will on the part of experience little management change projects, requires is also between policy. This structure and GON, and fits GON simultaneous USAID Analysis since it permits by the Technical and forestry supported agricultural, livestock coordinated support for LDO and the a direct link with the production and provides as will be increasingly important District Panchayats who hold. Decentralization takes provide by a contractor that will The PCO will be supported the in ,:he above and detailed in assistance as outlined It is technical and Monitoring Analyses. Technical, Financial Management, between a U.S. contractor be a joint venture recommended that this the assistance since a major portion of and local Nepali firm, locally. needed can be recruited Panchayat and Local level, the Ministry of At the national for the project. The serve as the lead agency Development will with MPLD for overall Office will work directly USAID Project Ministries of Agriculture, management, and also with the on project National Planning Commission and Finance and the Project Forestry, implementation. The USAID issues relating to project assistance direct support for technical Office will provide training and project procurement, participant departueILS contracting, with the appropriate GON monitoring, and will manage budgeting process for RDP. the overall planning and

65 B. Proiect Contracting very deliberac e I project was designed with a The Phase contractors resident in have two technical assistance choice to to provide independent Zone and for the USAID mission Rapti The rationale behind this choice assistance as well. I ivc s short-term contractors tend to take oil was that technical assistance the key IIMG rlb their own, often overshadowing and identities of to have workn!d; implementation. This strategy appears in project projects referred to as "the the team has heard of other USAID is an but Rapti is always Rapti. It (prime contractor) project", HNIG project. retain this sense of 11MG It is very important that RDP and 11MG must face the fact that ownership. Nonetheless, USAID staff able to provide the intense professional USAID will not be for the Phase I support for RDP that it provided and other and using contractor support Project. New means of structuring technical for RDP, not only for providing must be considered providing more general to the PCO, but for also in assistance and participant training support administrative, procurement, Kathmandu. also required because of broader role of a contractor is This individual consultants and the the large number of short-term the various analysis. The short-teril sub-contracts recommended in work in supervised, even though they will consultants must be If the long-term districts and/or different sectors. different or joint venture), are from the same contractor (prime personnel ensuring quality contractor all have a vested interest in and if is more apt to take place.. performance, this supervision is that it provides The major advantage of this mode management and the option of Freeing USAID/Nepal with streamlined jiven other purposes. In addiLion, up current USAID/RD staff for the HMG staff for Rapti Zonc, and the difficulty of recruiting it provides concerns about facilities and incentives, continuing qualified Nepalese who might flexibility to hire and support great to work in the Zone. otherwise not be available risk of this mode is that it runs the The major disadvantage project", the project into "the (prime contractor's) of turning It is also riskier in the se:nse thus diffusing any HMG ownership. would have having chosen one prime contractor, that HMG and AID, If a poor contractor that the contractor performed. to ensure would be provided IIMG's were chosen, very little additionality efforts.

66 other project analyses It is important to note for this and or targets and budget levels are that the proposed program outputs avoid The final Project Paper design must meant to be flexible. in Rapti Zone. The a "blueprint" for the next 8 years proscribing and funding allocation program targets are given for guidance that the RDP will support 11MG pol icy purposes. It is understood annual plan1s, effort to conform to HMG periodic and and make every Plans. particularly the annual District Development

67